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STAFF' S
REQUEST ANALYSIS
AND
RECOMMENDATION
08SN0217
Spencer Brothers, Inc.
Dale Magisterial District
East line of Iron Bridge Road
September 24, 2008 BS
RE VEST: Rezoning from Agricultural (A) to Neighborhood Business (C-2) of 8.9 acres and
Heavy Industrial (I-3) with Conditional Use of 6.4 acres to permit petroleum
products or fuel distribution with storage in excess of 50,000 gallons of liquid or
cubic feet of gas.
PROPOSED LAND USE:
Petroleum products and fuel storage and distribution not to exceed 230,000 gallons is planned on
the portion of the property proposed for Heavy Industrial (I-3) zoning and Neighborhood Business
(C-2) uses excluding gasoline/fuel sales are planned on the portion of the property proposed for
Neighborhood Business (C-2) zoning. (Proffered Condition 7)
PLANNING COMMISSION RECOMMENDATION
RECOMMEND APPROVAL AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON
PAGES 2 THROUGH 4.
STAFF RECOMMENDATION
Recommend approval for the following reason:
The Central Area Plan suggests the property is appropriate for community-scale mixed
uses to include commercial, office and higher density residential uses. The proposed C-3
zoning as well as the limitations offered on the I-3 use, (fuel and petroleum products
storage and distribution business) complies with the recommendation of the Plan.
Providing a FIRST CHOICE community through excellence in public service
(NOTE: CONDITIONS MAY BE IMPOSED OR THE PROPERTY OWNERS MAY
PROFFER CONDITIONS THE CONDITIONS NOTED WITH "STAFF/CPC" WERE
AGREED UPON BY BOTH STAFF AND THE COMMISSION. CONDITIONS WITH ONLY
A "STAFF" ARE RECOMMENDED SOLELY BY STAFF. CONDITIONS WITH ONLY A
"CPC" ARE ADDITIONAL CONDITIONS RECOMMENDED BY THE PLANNING
COMMISSION. )
PROFFERED CONDITIONS
(STAFF/CPC) 1. Utilities. All uses shall be connected to the public waste water
system with the exception of one warehouse building located on
the Heavy Industrial I-3 portion of the subject property shall be
permitted to develop on a septic system, subject to Health
Department regulations. At such time as public wastewater service
has been extended and is available to the remainder of the
property, the warehouse shall be connected to the public waste
water system. (U)
(STAFF/CPC) 2. Timberin . Except for timbering approved by the Virginia State
Department of Forestry for the purpose of removing dead or diseased
trees, there shall be no timbering on the Property until a land
disturbance permit has been obtained from the Environmental
Engineering Department and the approved devices installed. (EE)
(STAFF/CPC) 3. Access. Direct vehicular access from the property to Ironbridge
Road (Route 10) shall be limited to one (1) entrance/exit. The exact
location of this access shall be approved by the Transportation
Department. (T)
(STAFF/CPC) 4. Right of Way Dedication. Prior to any site plan approval or within
sixty (60) days of a written request by the Transportation
Department, whichever occurs first, one hundred (100) feet of right
of way on the east side of Route 10, measured from the centerline of
the roadway immediately adj acent to the property, shall be dedicated,
free and unrestricted, to and for the benefit of Chesterfield County.
(T)
(STAFF/CPC) 5. Road Improvements. The developer shall be responsible for the
following road improvements:
A. Construction of an additional lane of pavement along Route
10 for the entire property frontage;
2 08SN0217-SEP24-BOS-RPT
B. Construction of additional pavement along the northbound
lanes of Route 10 at the approved access to provide a
separate right turn lane;
C. Construction of additional pavement along the northbound
lanes of Route 10 at the Quaiff Lane intersection to provide
a separate right turn lane;
D. Full cost of traffic signalization of the intersection of Route
10 and Quaiff Lane, if warranted as determined by the
Transportation Department.
E. Dedication to Chesterfield County, free and unrestricted,
any additional right-of way (or easements) required for the
improvements identified above. In the event the developer
is unable to acquire any "off site" right-of way that is
necessary for any improvement described in Proffered
Condition 5, the developer may request, in writing, that the
County acquire such right-of way as a public road
improvement. All costs associated with the acquisition of
the right-of way shall be borne by the developer. In the
event the County chooses not to assist the developer in
acquisition of the "off site" right-of way, the developer
shall be relieved of the obligation to acquire the "off site"
right-of way and shall provide the road improvements
within available right-of way, as determined by the
Transportation Department. (T)
(STAFF/CPC) 6. Phasing Plan• Prior to any site plan approval a phasing plan for the
required road improvements, as identified in Proffered Condition 5,
shall be submitted to and approved by the Transportation
Department. The approved phasing plan shall require, among other
things, that prior to issuance of any occupancy permit with initial
development, the road improvements as identified in proffered
condition SA and 5C shall be completed as determined by the
Transportation Department. (T)
(STAFF/CPC) 7. Uses. Permitted uses shall be as follows:
A. Within the portion of the property zoned Heavy Industrial (I-
3), permitted uses shall be limited to petroleum products or
fuel (gas or liquid distribution) not to exceed 140,000 gallons
of liquid and 90,000 gallons of propane.
3 08SN0217-SEP24-BOS-RPT
B. Within the portion of the property zoned Neighborhood
Business (C-2), permitted uses shall be limited to uses
permitted by right or with restrictions in the Neighborhood
Business (C-2) District, except that gasoline/fuel sales shall
be prohibited. (P)
(STAFF/CPC) 8. Outside Storage Within the portion of the property zoned Heavy
Industrial (I-3), outside storage shall be permitted provided that:
A. Outside storage is limited to company vehicles, individual
propane tank storage, a maximum of three (3) above
ground bulk fuel/gas storage tanks, and a maximum of
seven (7) below ground bulk fueUgas storage tanks.
Trailers shall not be permitted to be used for storage.
B. Outside storage shall be limited to a maximum area of
80,000 square feet located generally in the southeast corner
of the request property. The exact location shall be
approved by the Planning Department at the time of site
p an review.
C. Screening of outside storage areas shall be compatible with
screening on Tax ID #772-673-4300. (P)
(Note: This condition is in addition to the screening requirements
of the Zoning Ordinance.)
(STAFF/CPC) 9. Architecture. Buildings and materials shall be compatible with the
development on Tax ID #772-673-4300. (P)
(Note: This condition is in addition to the architectural requirements
of the Zoning Ordinance)
GENERAL INFORMATION
Location:
East line of Iron Bridge Road, south of Kingsland Road. Tax IDs 771-672-6776 and 7237.
Existing:
A
4 08SN0217-SEP24-BOS-RPT
Size:
15.3 acres
Existin Land Use:
Vacant
Adjacent Zoning and Land Use:
North - C-5; Commercial or vacant
South - C-5 and A; Public/semi-public or vacant
East - A; Residential, agricultural or vacant
West - A; Vacant
UTILITIES
Public Water System:
There is an existing sixteen (16) inch water line extending within an easement along the
west site of Iron Bridge Road, opposite the request site. A twelve (12) inch water line
extends along the north side of Quaiff Lane opposite this site. Use of the public water
system is required by County Code.
Public Wastewater S,, sue:
There is an existing fifteen (15) inch wastewater trunk line extending along a portion of
Reedy Branch that terminates adjacent to Old Salem Church Road approximately 7,900 feet
east of this site. Plans prepared by Balzer and Assoc., Inc. propose extending an eighteen
(18) inch trunk line to a point approximately 4,600 feet east of the request site in conjunction
with the development of Reedy Springs Subdivision. The applicant has requested that one
(1) warehouse building to be located in the Heavy Industrial I-3 portion of the request site be
permitted to develop on a septic system. This is considered acceptable to the Utilities
Department provided Health Department regulations are met and provided connection is
made at such time as the public wastewater system has been extended and is available to the
remainder of the property. To address this concern, the applicant has proffered to use the
public wastewater system for all uses except that one (1) warehouse building within the I-3
tract will be permitted utilizing an individual septic system until such time as public
wastewater service is extended and available to the property. This warehouse building will
then be connected to the public wastewater system. (Proffered Condition 1)
Private Septic S,, s
The Health Department must approve use of a septic system.
5 08SN0217-SEP24-BOS-RPT
ENVIRONMENTAL
Drainage and Erosion:
The subject property borders a tributary of Kingsland Creek and then via Kingsland Creek
to the James River. There are currently no known on- or off site drainage or erosion
problems and none are anticipated after development. There is a combined sewer and
drainage easement which runs generally north and south across the request property. The
property is wooded and, as such, should not be timbered without the developer first
obtaining a land disturbance permit from the Department of Environmental Engineering and
the appropriate devices being installed (Proffered Condition 2). This will assure that erosion
control measures are in place prior to any land disturbance.
Water ua 1
Kingsland Creek, a large tributary to the south, is a perennial stream and, as such, is subject
to a 100-foot conservation area inside of which uses are very limited.
There will be State permits required for both underground and above ground storage tanks.
These permits should address any containment berms required for above ground tanks. The
Federal law enforced by an EPA program called Spill Prevention Control and Counter
Measure (SPCC) Regulation (40 CFR 112) should address any inside storage.
PUBLIC FACILITIES
Fire Service:
The Airport Fire Station, Company 15, currently provides fire protection and emergency
medical service (EMS). When the property is developed, the number of hydrants, quantity
of water needed for fire protection and access requirements will be evaluated during the
plans review process. This request will have a minimal impact on Fire and EMS.
Transportation:
The property (15.3 acres) is currently zoned Agricultural (A) and the applicant is
requesting rezoning to Neighborhood Business (C-2) of 8.9 acres and Heavy Industrial (I-
3)with Conditional Use of 6.4 acres to permit petroleum products or fuel distribution.
This request will not limit development to a specific land use; therefore, it is difficult to
anticipate traffic generation. Based on the traffic study submitted to the Virginia
Department of Transportation (VDOT), the applicant has indicated that the site would be
developed with ahigh-turnover restaurant, a pharmacy, drive-in bank, and a warehouse.
Based on trip rates for the proposed uses, the property could generate approximately
3,100 ADT. Traffic from this development will be initially distributed along Iron Bridge
6 08SN0217-SEP24-BOS-RPT
Road (Route 10), which had a 2006 traffic count of 44,779 vehicles per day and was
functioning beyond capacity (Level of Service F) from Route 288 to Kingsland Road.
No public road improvements in this part of the county are currently included in the Six-
Year Improvement Plan.
The Thoroughfare Plan identifies Route 10 as a major arterial with a recommended right-
of way of 120 to 200 feet. The applicant has proffered to dedicate 100 feet of right-of
way measured from the centerline of Route 10, in accordance with that Plan. (Proffered
Condition 4)
Access to major arterials, such as Route 360, should be controlled. The applicant has
proffered to limit direct vehicular access to one (1) entrance/exit along Route 10
(Proffered Condition 3). The Transportation Department has informed the applicant that
because of the existing median along Route 10, any new entrance/exit to the property will
be a right-in/right-out and would need to be located approximately 500 feet from the
existing Route 10/Quaiff Lane intersection.
The traffic impact of this development must be addressed. The applicant has proffered
the customary road improvements such as: 1) construct an additional lane of pavement
along Route 10 for the entire property frontage; 2) construct a separate right turn lane
along Route 10 at Quaiff Lane and the approved access; and 3) provide full cost of traffic
signalization of the intersection of Route 10 and Quaiff Lane, if warranted. (Proffered
Condition 5)
The applicant has proffered to provide a phasing plan for the proffered road
improvements (Proffered Condition 6). According to Proffered Condition 6, the
approved phasing plan would require with initial development, at a minimum, the
construction of an additional lane of pavement along Route 10 for the entire property
frontage and the construction of a separate right turn lane along Route 10 at the Quaiff
Lane intersection.
Acquisition of "off site" right-of way may be necessary for the proffered road
improvements. According to Proffered Condition 5, if the developer needs off site right-
of way and is unable to acquire it, the developer may request the county to acquire the
right-of way as a public road improvement. All costs associated with the acquisition will
be borne by the developer. If the county chooses not to assist with the right-of way
acquisition, the developer will not be obligated to acquire the off site right-of way, and
will only be obligated to construct road improvement within available right-of way
(Proffered Condition 5E). At time of site plan review, specific recommendations will be
provided regarding access and internal circulation.
The Virginia Department of Transportation's (VDOT's) "Chapter 527" regulations,
dealing with development Traffic Impact Analysis (TIA) requirements, have been
enacted. On July 1st, VDOT also enacted access management regulations along principal
arterial roadways. This regulation may impact the proffered access along Route 10. Staff
has been meeting with VDOT to attempt to understand the impact of the regulations. At
7 08SN0217-SEP24-BOS-RPT
this time, it is uncertain what impact VDOT's regulations will have on the development
process or upon zonings approved by the county. As previously noted, the applicant has
submitted a Chapter 527 TIA to VDOT. VDOT's comments regarding this request are
attached.
Virginia Department of Transportation (VDOT):
See attached letter dated July 29, 2008.
T .ANTI T TCF.
Comprehensive Plan:
Lies within the boundaries of the Central Area Plan which suggests the property is
appropriate for community-scale developments including shopping centers, other
commercial and office uses as well as integrated higher density residential uses excluding
multi-family residential development.
Area Development Trends:
Properties to the north of the request property are zoned General Commercial (C-5) with
Conditional Use Planned Development and are occupied by general commercial and light
industrial uses, including outside storage. Properties to the south are zoned General
Commercial (C-5) and Agricultural (A) and are occupied by public/semi-public use (Harry
G. Daniel Park at Ironbridge) or are vacant. Properties to the east and west are zoned
Agricultural (A) and are occupied by agricultural and residential use or are vacant. It is
anticipated that this area will continue to develop for commercial use as suggested by the
Plan.
Use Limitations:
The fuel and petroleum products storage and distribution business would be the only use
permitted within the proposed I-3 tract (Proffered Condition 7). The proffer further limits
this storage to a maximum of 230,000 gallons of liquid, 90,000 gallons of which would be
propane. Within the C-2 tract, permitted uses would be uses permitted by right or with
restrictions in the Neighborhood Business (C-2) District, excluding gasoline/fuel sales.
(Proffered Condition 7)
Site Design:
The request property lies within an Emerging Growth District Area. The Zoning Ordinance
specifically addresses access, landscaping, setbacks, parking, signs, buffers, utilities and
screening. The purpose of the Emerging Growth District Standards is to promote high
quality, well-designed projects. Any new development of the request property will be
subject to these Ordinance standards and the additional design standards relative to
architectural treatment and screening. (Proffered Conditions 8 and 9)
8 08SN0217-SEP24-BOS-RPT
Outside Storage:
Within the I-3 tract, outside storage would be permitted for company vehicles, individual
propane tank storage and a maximum of three (3) above ground bulk fuel/gas storage tanks
(Proffered Condition 8). A maximum of seven (7) below ground bulk fuel/gas storage tanks
would also be permitted. This outside storage area would be limited to a maximum area of
80,000 square feet which would be located generally in the southeast corner of the I-3 tract.
As stated above, development of the request property must comply with Ordinance
requirements relative to site design, including screening. The Ordinance would require
outside storage areas to be screened from public roads and adjacent properties where
outside storage is not permitted. To assure compatibility between the proposed
development and the project to the north, Proffered Condition 8 requires screening on the
request property to be compatible with screening on this adjacent property to the north
(Tax ID 772-673 -43 00).
Architecture:
As noted, new development of the property would be required to meet development
standards for Emerging Growth District areas. Specific standards apply to architectural
treatment of buildings in these areas which are intended to provide for quality building
construction. Proffered Condition 9 further requires that buildings and materials on the
request property be compatible with development on the adjacent property to the north
(Tax ID 772-673-4300).
CONCLUSION
As noted, the Central Area Plan suggests the request property is appropriate for community-scale
mixed uses to include commercial, office and higher density residential uses. The proposed C-2
zoning complies with the Plan. With respect to the proposal for General Industrial (I-3), proffers
restrict the uses permitted and require screening of the petroleum business from area properties.
With these limitations, the restricted I-3 zoning conforms to the spirit and intent of the Plan.
Given these considerations, approval of this request is recommended.
CASE HISTORY
Planning Commission Meeting (8/19/08):
The applicant accepted the recommendation. There was opposition present expressing
concerns about potential fire hazards and landscaping and berming within required buffers.
Dr. Brown stated Staff assured him safety and environmental protections were in place and
that the development would be required to meet stringent security regulations.
9 08SN0217-SEP24-BOS-RPT
On motion of Dr. Brown, seconded by Mr. Waller, the Commission recommended approval
of this request and acceptance of the proffered conditions on pages 2 through 4.
AYES: Unanimous.
The Board of Supervisors, on Wednesday, September 24, 2008, beginning at 6:30 p.m., will take
under consideration this request.
10 08SN0217-SEP24-BOS-RPT
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July 29, 2008
Mr. Jai Banks
chesterfield Comity Transpo~tion Depai~rient
P.O. Box 40
C~sterfield, VA 23832
RE: Traffic Impact Analysis Report (revised dated J^ne 2, 2008)
fencer Tract (final sul~ission received by VDOT June 4, 2~8)
Dear Mr. Banks:
In a~ordan~ w~ X15.2-2222.1 of the Code of ~irgir~ ark the Virginia Traffic Impact
A.~~ R~ulatio~, 24 VAC 30-155 also known as Chapter 527}, a~affrc~mpact a~sis
was prepared by Balzer & Associates on the rezoning for the proposed development project
entitled Spen~r 1~•ct submitted by Spencer Brothers, Inc.
• We have evaluated this traffic impact analysis and find the report conforms to the retirements
of Cl~pter 527 in regard to the accuracy of the methodologies, assur~pti~s and conclusi~s
' presented in the ai~ilysis. Key findings and recommendation i~ntified in the traffic impact
analy~ a~ nod on pages 1-6 of the report ~ i~lude the fo~ving:
.~.
Nf aj or commer~ include:
• Please re-evaluate project to comply with current Access Management Reg~ation for
~ Princi al Arterial 24V.~C30-72 and mirror our stu to ~ acce tabs Accts
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Description:
• ~e subject ate is generally located north of Route 2~, east of Iron ~r~ge .dad ~Ro~e
1^), and south ~'.~gsdale Rid in Chesterfield C~un~ Yirgin~^.
• ~e ^pplicant, fencer Br^thers, Inc., is se~'ng to rezone the ~e from Agricr~ure (A)
`. to ~i~hiod Business District ~C-2) ~d Heavy Indu~ri~ (1-3) to all~v ~e
dev~ment of approximately 14, 040 square feet of pharmacy, a 6, 400 square foot
' restaurant, a 4, 000 square foot drive-in bank, and 12, 000 square feet warehouse
space.
- -
08SN0217-1
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Spencer Tract TIA
July 29, 200$
Pale 2 0~4
• Access to the site is proposed via a full movement entrance on Quaiff Lane and aright-
in/right-out only entrance on Iron Bridge Road (Route 10).
• It is estimated that development of Spencer Tract would add 144 new A~VI peak hour, 290
new PM peak hour, and 2, 356 new daily new trips to the local roadway network
• For purposes of this study, it was assumed that the site would be built out by 2012.
Ca aci Without Develo ment
• Each of the study intersections currently operates at overall acceptable levels of service
(L4S) during both the ASV! and PM peak hours with the exception of the Iron Bridge Road
(Route 10)l~Yhitepine Road intersection. The side street approaches to this intersection
currently operate at LAS "E"and "F"during the P~VI peak hour.
• In 2014, without development of Spencer Tract, each of the study intersections would
continue to operate at overall acceptable levels of service with the exception of the Iron
Bridge Road (Route 10}IWhitepine Road intersection which would operate at LAS "F"
during both peak hours. Additionally, several approaches to the Iron Bridge Road
(Route 10} intersections with Quaiff Lane and Kingsland Road would operate at LnS
"E "or "F". No improvements to any of the study intersections are currently committed or
funded '~
Proffers:
• The following roadway improvements are proffered to be constructed with development
rt
of the Spencer Tract:
^ Dedication to Chesterjzeld County of 100 feet of right of way on the east side of
Iron Bridge Road (Route 10), measured from the centerline of the roadway
immediately adjacent to the property.
Construction of an additional northbound through lane on Iron Bridge
Road(Route 10) across the entire property frontage.
^ Construction of a separate northbound right turn lane on Iron Bridge Road
(Route 10} at the Quaiff Lane intersection.
^ Construction of a separate northbound right turn lane on Iron Bridge Road
(Route 10} at the right-inlright-out entrance to the subject property.
^ Full cost of traf~c signalization of the Iron Bridge Road (Route 10}/Quaiff Lane
intersection, if warranted.
^ Dedication to Chesterjzeld County any additional right of way required for the
above improvements
Ca aci ith Develo ment and Proffers
• In 2014, with development of Spencer Tract and the proffered improvements noted above,
each of the study intersections would continue to operate at similar LAS to the
background conditions. Speci rcally, all intersections would operate at overall acceptable
LAS with the exception of the Iron Bridge Road (Route 10}/Whitepine Road intersection
which would operate at LAS " F during both peak hours and the Iron Bridge Road
(Route 10)/Quaiff Lane intersection which would operate at LAS "E" during the P~VI
peak hour. Additionally, several approaches to the Iron Bridge Road (Route
10}/Kingsland Road intersection would operate at LAS "E" or "F".
WE KEEP VIRGINIA~IIQVING
Spencer Tract TZA
July 29, 2D08
Page 3 of 4
• Under total future 2014 traff c conditions, the Iron Bridge Road (Route 10}/Quaiff bane
intersection does not meet the Manual on Uniform Traffic Control Devices (MUTCD}
Warrant lA or 1B for installation of a trafj~c signal. ~VDOT note: at time of detailed plan
submission, VDOT staff will continue to monitor this intersection to assess whether a
signal is warranted.
Other Recommended Su ested Stud Area Im rovements:
• While not currently committed or funded, the following improvements are recommended
to allow the study intersections to operate at acceptable levels of service:
Widening Iron Bridge Road Route l o} to six lanes in both directions throughout
the study area.
Restriping the east and westbound approaches to the Iron Bridge .Road (Route
1 D}/Whitepine .Road intersection to allow for an exclusive left turn lane and a
shared through-right lane in both directions. The trafj~c signal would also need to
be modi zed to allow for concurrent east and west phasing with a protected left
turn phase in each direction.
VDOT staff and the consultant have discussed this Chapter 527 report in regard to the
distribution methodology. Typically the distribution methodology in a Chapter 527 report
includes not only traffic counts but other sources such as market studies, census information,
other development, and land use plans. However, it appears there is sufficient information
elsewhere in this report such that it is unlikely that re-calculating the distribution with this other
information will result in a significant difference in conclusions or findings of the report. VDOT
staff and the consultant also discussed the selection of roadways and intersections. The
consultant selected roadways and intersections for analysis based upon whether the distributed
trips involved ten percent or more of the roadway traffic, but Chapter 527 regulations based the
selection on whether it involved ten percent or more of the trips generated by the development.
However, Chapter 527 regulations were recently revised to reduce the study area for this size of
development from "not to exceed two miles" to "not to exceed one mile" from the development.
In this case, the roadways and intersections selected for analysis in the TIA report extend nearly
one mile from the development and are therefore appropriately selected under the revised
regulations. We have been assured by the consultant that future Chapter 527 reports will include
typical distribution methodologies and will include the selections of roadways and intersections
as per the revised Chapter 527 regulations.
It is our understanding the traffic impact analysis report has been provided to both VDOT and
Chesterfield County, Its purpose can include assisting the Planning Director, the Planning
Commission andlor the Board of Supervisors in their decision-making process regarding the
proposed development. I am and members of our staff are available at your convenience to meet
with you, the Planning Commission, and the Board of Supervisors to discuss the findings of the
traffic impact analysis and answer any questions. I also would appreciate the opportunity to
present these recommendations at any public meeting on the above referenced project.
Finally, I ask that you arrange to have VDOT's summary of the key findings of the traffic
analysis included in the official public records meeting minutes, staff reports on the proposed
project and to have this letter and the traffic impact analysis placed in the case file for the site
plan application. VDOT will also make these documents available to the general public.
1NE KEEP VIRGINIA'~IGVING
Spencer Tract TIA
July 29, 2008
Page 4 of 4
Sincerely,
~~
Boris Solomonov, P.E.
Land Development Manager
Chesterfield Residency
cc: Stephen Schmidt, Balzer and Associates
Tom Hawthorne, District Administrator, VDT ~ Richmond District
Dale Totten, Residency Administrator, Chesterf eld Residency
Mark Riblett, District Planning Engineer, Richmond District
EVE KEEP VIRGINIA~IGVING
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