07SN0353
September 26, 2007 BS
ADDENDUM
07SN0353
Doran Development Co., L.L.C.,
Richard J. November, Manager
and
H. R. Pollard, IV, Manager
Bermuda Magisterial District
Wells Elementary; Carver Middle; and Thomas Dale High Schools Attendance Zones
East line of Happy Hill Road
REQUESTS:
I. Rezoning from Agricultural (A) to Residential (R-12).
II. Relief to street access requirements to allow fifty-three (53) lots on one (1)
access.
PROPOSED LAND USE:
A residential subdivision having a minimum lot size of 12,000 square feet is
proposed. The applicant has agreed to limit development to fifty-three (53) lots,
yielding a density of approximately 1.7 dwelling units per acre (Proffered Condition
4). Relief is requested to permit fifty-three (53) lots off of one access from Happy
Hill Road. The Ordinance permits a maximum of fifty (50) lots off of one access.
On September 20,2007, the applicant submitted a revision to Proffered Condition 9. This revision
permits development of the property without the specified turn lanes should the Virginia Department
of Transportation (VDOT) not approve construction of these road improvements as shown on
Exhibit A in the "Request Analysis", which are less than typical VDOT standards due to physical
constraints along the roadway. VDOT has indicated that they could support the improvements
shown on Exhibit A. The Transportation Department likewise supports the design of these
improvements.
Staff continues to recommend approval of the rezoning portion of this request, for reasons noted in
the "Request Analysis" and acceptance of Proffered Condition 9 as amended herein.
Providing a FIRST CHOICE community through excellence in public service
(NOTE: SHOULD THE BOARD WISH TO CONSIDER THIS PROFFER, THEY MUST
UNANIMOUSLY AGREE TO SUSPEND THEIR PROCEDURES, AS SUCH PROFFER
WAS SUBMITTED AFTER THE CASE APPEARED IN THE NEWSPAPER.)
PROFFERED CONDITION
9. In conjunction with development of the initial section, the developer shall be
responsible for construction of additional pavement along Happy Hill Road at the
public road intersection to provide left and right turn lanes, as generally shown on
"Exhibit 'A' Preliminary Turn Lane Configuration" prepared by B.D. Lewis and
Associates dated July 20, 2007, and dedication, free and unrestricted, to and for the
benefit of Chesterfield County, of any additional right-of-way (or easements)
required for these improvements. IfVDOT does not approve construction of any part
of the improvements as generally shown on Exhibit A, then the developer shall be
relieved of the requirement to construct that speciJac part of the improvement but
shall be responsible for construction of the remainder of the improvements, as
determined by the Transportation Department. In the event the developer is unable to
acquire any "off site" right-of-way that is necessary for these improvements, 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 th(~ 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)
2
07SN0353-SEP26-BOS-ADD
July 17, 2007 CPC
1^.Ugust 21, 2007 CPC
September 26,2007 BS
STAFF'S
REQUEST ANALYSIS
AND
RECOMMENDATION
07SN0353
Doran Development Co., L.L.C.,
Richard 1. November, Manager
and
H. R. Pollard, IV, Manager
Bermuda Magisterial District
Wells Elementary; Carver Middle; and Thomas Dale High Schools Attendance Zones
East line of Happy Hill Road
REQUESTS:
I. Rezoning from Agricultural (A) to Residential (R-12).
II. Relief to street access requirements to allow fifty-three (53) lots on one (1)
access.
PROPOSED LAND USE:
A residential subdivision having a minimum lot size of 12,000 square feet is
proposed. The applicant has agreed to limit development to fifty-three (53) lots,
yielding a density of approximately 1.7 dwelling units per acre (Proffered
Condition 4). Relief is requested to permit fifty-three (53) lots off of one access
from Happy Hill Road. The Ordinance permits a maximum of fifty (50) lots off
of one access.
PLANNING COMMISSION RECOMMENDATION
RECOMMEND APPROVAL AND ACCEPTANCE OF THE PROFFERED CONDITIONS ON
PAGES 2 THROUGH 4.
Providing a FIRST CHOICE community through excellence in public service
STAFF RECOMMENDATION
Request I:
Recommend approval for the following reasons:
A. The proposed zoning and land uses conform to the Southern and Western
Area Plan which suggests the property is appropriate for residential use of
2.51 to 4.0 units per acre.
B. The proffered conditions adequately address the impacts of this
development on necessary capital facilities, as outlined in the Zoning
Ordinance and Comprehensive Plan. Specifically, the needs for roads,
schools, parks, libraries and fire stations is identified in the Public
Facilities Plan, the Thoroughfare Plan and the Capital Improvement
Program, and the impact of this development is discussed herein. The
proffered conditions mitigate the impact on capital facilities, thereby
insuring adequate service levels are maintained and protecting the health,
safety and welfare of County citizens.
Request II:
Recommend denial of the relief from street access requirements to allow fifty-
three (53) lots off of one (1) access for the following reasons:
A. The accessibility to and from the development in an emergency situation,
should access be blocked, will be restricted thereby adversely affecting the
health, safety and welfare of citizens in the development.
B. The request fails to meet the Ordinance criteria under which relief should
be granted.
(NOTE: CONDITIONS MAY BE IMPOSED OR THE PROPERTY OWNER(S) 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
The property owners and applicant in this rezoning case, pursuant to 15.2-2298 of the Code of
Virginia (1950 as amended) and the Zoning Ordinance of Chesterfield County, for themselves
and their successors or assigns, proffer that the property under consideration will be developed
according to the following proffers if, and only if, the rezoning request submitted herewith is
granted with only those conditions agreed to by the owners and applicant. In the event this
request is denied or approved with conditions not agreed to by the owners and applicant, the
proffers shall be immediately be null and void and of no further force or effect.
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07SN 0353-SEP26- BOS- RPT
(STAFF/CPC)
(STAFF/CPC)
(STAFF/CPC)
(STAFF/CPC)
(STAFF/CPC)
(STAFF/CPC)
(STAFF/CPC)
1.
Cash Proffers. The applicant, subdivider, or assignee(s) shall pay
the following to the County of Chesterfield, prior to the issuance of
a building permit, for infrastructure improvements within the
service district for the property:
a. $15,600 per dwelling unit, ifpaid prior to July 1,2007; or
b. The amount approved by the Board of Supervisors not to
exceed $15,600 per dwelling unit adjusted upward by any
increase in the Marshall and Swift Building Cost Index
between July 1,2006, and July 1 of the fiscal year in which
the payment is made ifpaid after June 30, 2007.
Cash proffer payments shall be spent for the purposes proffered or
as otherwise permitted by law. Should Chesterfield County
impose impact fees at any time during the life of the development
that are applicable to the property, the amount paid in cash proffers
shall be in lieu of or credited toward, but not in addition to, any
impact fees, in a manner as determined by the County. (B & M)
2
Utilities. The public water and wastewater systems shall be
utilized. (U)
3.
Timbering. Except for the 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 have been
installed. (EE)
4.
Density. Development shall be limited to a maximum of fifty-
three (53) lots. (P)
5.
Materials. The exterior facades of all homes shall be of brick,
stone or vinyl siding or a combination of the foregoing. All
foundations to be brick or stone veneer. (P)
6.
One-story dwelling units shall have a minimum floor area of 1,800
square feet. Dwelling units with more than one story shall have a
minimum floor area of 2,000 square feet. (P)
7.
In conjunction with the recordation of the initial subdivision plat or
within ninety (90) days of a written request by the County,
whichever occurs first, forty-five (45) feet of right-of-way on the
east side of Happy Hill Road, measured from the centerline of that
part of Happy Hill Road immediately adjacent to the property,
3
07SN 0353-SEP26- BOS- RPT
(STAFF/CPC)
(STAFF/CPC)
Location:
shall be dedicated, free and unrestricted, to and for the benefit of
Chesterfield County. (T)
8.
Direct vehicular access from the property to Happy Hill Road shall
be limited to one (1) public road that aligns with Fielding Road.
The exact location of this public road shall be approved by the
Transportation Department. (T)
9.
In conjunction with development of the initial section, the
developer shall be responsible for construction of additional
pavement along Happy Hill Road at the public road intersection to
provide left and right turn lanes, as generally shown on "Exhibit
'A' Preliminary Turn Lane Configuration" prepared by E.D. Lewis
and Associates dated July 20, 2007, and dedication, free and
unrestricted, to and for the benefit of Chesterfield County, of any
additional right-of-way (or easements) required for these
improvements. In the event the developer is unable to acquire any
"off site" right-of-way that is necessary for these improvements,
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)
GENERAL INFORMATION
East line of Happy Hill Road, across from Fielding Road. Tax ID 799-642-4348.
Existing Zoning:
A
Size:
30.7 acres
Existing Land Use:
Residential or vacant
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07SN 0353-SEP26- BOS- RPT
Adiacent Zoning and Land Use:
North and South - A; Single family residential
East - A; Vacant
West - R-40; Single family residential
UTILITIES
Public Water System:
There is an existing sixteen (16) inch water line extending along Happy Hill Road
adjacent to this site. Use of the public water system is intended (Proffered Condition 2).
Per Utilities Department Design Specifications (DS-21), wherever possible, two (2)
supply points shall be provided for subdivisions containing more than twenty-five (25)
lots.
Public Wastewater System:
There is an existing sixteen (16) inch wastewater trunk line extending along a tributary of
Ashton Creek that crosses the Seaboard Coastline Railroad right-of-way adjacent to the
northern boundary of this site. Use of the public wastewater system is intended.
(Proffered Condition 2)
ENVIRONMENT AL
Drainage and Erosion:
The subj ect property drains to the northeast, then under the adj acent railroad to Ashton
Creek. There are currently no known on- or off-site drainage or erosion problems and
none are anticipated after development.
The property is wooded and, as such, should not be timbered without obtaining a land
disturbance permit from the Department of Environmental Engineering. This will ensure
that the adequate erosion control measures are in place prior to any land disturbance.
(Proffered Condition 3)
Water Quality:
The southeast property line runs along a small tributary. A perennial flow determination
must be submitted to and approved by Environmental Engineering's Water Quality
Section prior to tentative subdivision plan approval.
PUBLIC FACILITIES
The need for fire, school, library, park and transportation facilities is identified in the Public
Facilities Plan, the Thoroughfare Plan and the Capital Improvement Program.
5
07SN 0353-SEP26- BOS- RPT
Fire Service:
The Public Facilities Plan indicates that fire and emergency medical service (EMS) calls
are expected to increase 44 to 78 percent by 2022. Six (6) new fire/rescue stations are
recommended for construction by 2022 in the Plan. In addition to the six (6) new stations,
the Plan also recommends the expansion of five (5) existing stations. Based on fifty-three
(53) dwelling units, this request will generate approximately fifteen (15) calls for fire and
emergency medical service each year. The applicant has addressed the impact on fire and
EMS. (Proffered Condition 1)
The Chester Fire Station, Company 1, and Bensley Bermuda Volunteer Rescue Squad
currently provide fire protection and emergency medical service. 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.
To satisfy the requirement of Section 17-76 of the Subdivision Ordinance, when the
cumulative total of homes in a proposed development exceeds fifty (50), a second public
road access to all dwellings should be provided. This requirement is necessary to provide
emergency vehicles a second access to the homes should the other entrance become
blocked. With the proffered limitation of only one (1) access to Happy Hill Road, the
applicant has requested relief to this access requirement to allow fifty-three (53) lots off
of one (1) access. The Ordinance states that relief can be granted by the Planning
Commission for a maximum of sixty-two (62) lots at the time of zoning if a preliminary
tentative plat is submitted with sufficient documentation that clearly demonstrates:
A. Existing severe topographic, physical or extenuating circumstances exist
so that there is no other practical means of providing another access; and
B. Financial hardship is not the principal reason for the waiver; or
C. Without granting relief to these requirements traffic on an existing local
street will exceed the Planning Commission's Stub Road Policy as
determined by the Director of Transportation.
The attached conceptual subdivision layout provided by the applicant does not
demonstrate that any of these circumstances exist. The Fire Department opposes granting
relief to the access requirements. It should be noted that the International Fire Code
indicates that a second access should be provided when the number of lots served by a
single access exceeds thirty (30).
Schools:
Approximately twenty-eight (28) (Elementary: 12, Middle: 7, and High: 9) students
will be generated by this development. Currently, this site lies in the Wells Elementary
School attendance zone: capacity - 697, enrollment - 917; Carver Middle School zone:
capacity - 1,229, enrollment - 1,265; and Thomas Dale High School zone: capacity -
1,851, enrollment - 2,399. This case will be in the Marguerite Christian School zone
beginning this fall: capacity - 688, enrollment - 955. The enrollment is based on
6
07SN 0353-SEP26- BOS- RPT
September 29, 2006 and the capacity is as of 2006-2007. This request will have an
impact at the middle and high school levels. There are currently ten (10) trailers at Wells
Elementary, seven (7) at Carver Middle and eight (8) at Thomas Dale High School.
The new Elizabeth N. Scott Elementary School is scheduled to open this fall and the new
Elizabeth B. Davis Middle School is scheduled to open in 2008. The new elementary
school will provide relief for elementary schools in the Chester area and the new middle
school will provide relief for Chester and Carver Middle Schools. This area of the county
continues to experience growth and these schools will provide much needed space.
This case combined with other residential developments and zoning cases in the area, will
continue to push these schools over capacity, necessitating some form of relief in the
future. The applicant has addressed the impact of the development on schools. (Proffered
Condition 1)
Libraries:
Consistent with the Board of Supervisors' policy, the impact of development on library
services is assessed County-wide. Based on projected population growth, Public
Facilities Plan identifies a need for additional library space throughout the County.
Development of the property could affect the Chester Library, the Ettrick-Matoaca
Library, or a potential new library in the southeastern area of the county. The Public
Facilities Plan identifies a need for additional library space in this area of the county. The
applicant has addressed the impact of the development on libraries. (Proffered Condition
1)
Parks and Recreation:
The Public Facilities Plan identifies the need for: three (3) new regional parks, seven (7)
community parks, twenty-nine (29) neighborhood parks and five (5) community centers
by 2020; 354 acres of regional park space, 252 acres of community park space and 199
acres of neighborhood park space by 2020; linear parks and resource based-special
purpose parks (historical, cultural and environmental); the addition of recreational
facilities to include sports fields, trails, playgrounds, court games, senior centers and
picnicking area/shelters at existing parks; and water access and trails along the James and
Appomattox Rivers and their major tributaries, Swift and Falling Creeks. There is
currently a shortage of community and neighborhood park acreage in the County.
The applicant has offered measures to assist in addressing the impact of this proposed
development on these parks and recreation facilities. (Proffered Condition 1)
Transportation:
The property is located on the east side of Happy Hill Road across from the Happy Hill
Farms Subdivision. The applicant is requesting rezoning from Agricultural (A) to
7
07SN 0353-SEP26- BOS- RPT
Residential (R-12) and has proffered a maximum density of fifty-three (53) units
(Proffered Condition 4). Based on single-family trip rates, development of the property
could generate approximately 580 average daily trips. These vehicles will initially be
distributed along Happy Hill Road, which had a 2006 traffic count of 8,307 vehicles per
day. Based on the volume of traffic it carried during peak hours, Happy Hill Road was at
capacity (Level of Service E).
The Thoroughfare Plan identifies Happy Hill Road as a major arterial with a
recommended right of way width of ninety (90) feet. The applicant has proffered to
dedicate forty-five (45) feet of right of way on the east side of Happy Hill Road,
measured from the centerline, in accordance with this Plan. (Proffered Condition 7)
Access to major arterials, such as Happy Hill Road, should be controlled. The applicant
has proffered that direct vehicular access from the property to Happy Hill Road will be
limited to one (1) public road that aligns with Fielding Road. (Proffered Condition 8)
The traffic impact of this development must be addressed. The applicant has proffered to
construct right and left turn lanes along Happy Hill Road at the public road intersection,
as generally shown on Exhibit A, and dedicate any additional right of way required for
these improvements (Proffered Condition 9). In order to provide the turn lanes along
Happy Hill Road, significant, off-site right-of-way will have to be acquired from the
property to the south. According to Proffered Condition 9, if the developer needs off-site
right-of-way for construction of the turn lanes, and is unable to acquire it, the developer
may request the county to acquire the right-of-way as a public road improvement. 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
improvements within available right-of-way.
Sight distance, when looking to the north and south from the property, is limited along
Happy Hill Road. The applicant may have to provide additional, off-site improvements
and/or obtain off-site easements in order to obtain adequate sight distance at the public
road intersection on Happy Hill Road.
Area roads need to be improved to address safety and accommodate the increase in traffic
generated by this development. Traffic generated by this development will travel along
Happy Hill Road. Sections of Happy Hill Road have little or no shoulders, fixed obj ects
adjacent to the edge of pavement, and poor vertical and horizontal alignments. The
applicant has proffered to contribute cash, in an amount consistent with the Board of
Supervisors' Policy, towards mitigating the traffic impact of this development.
(Proffered Condition 1)
Cash proffers alone will not cover the cost of the road improvements needed in this area.
There are two projects in this area currently included in the Six-Year Improvement
Program. One involves improving Branders Bridge Road from Bradley Bridge Road to
south of Happy Hill Road. Construction of this project is not anticipated until 2012. A
second project involves improving the curve and intersection on Branders Bridge Road at
8
07SN 0353-SEP26- BOS- RPT
Bradley Bridge Road. VDOT anticipates construction of these improvements in 2009.
The county has a project that involves adding a shoulder on Happy Hill Road between
South Chester Road and Longmeadow Boulevard. Construction of the first phase of this
project is anticipated for Summer 2008.
Financial Impact on Capital Facilities: PER UNIT
Potential Number of New Dwelling Units 53* 1.00
Population Increase 144.16 2.72
Number of New Students
Elementary 12.35 0.23
Middle 6.89 0.13
High 8.96 0.17
TOTAL 28.20 0.53
Net Cost for Schools $283,444 $5,348
Net Cost for Parks 32,012 604
Net Cost for Libraries 18,497 349
Net Cost for Fire Stations 21,465 405
Average Net Cost for Roads 473,926 8,942
TOTAL NET COST $829,344 $15,648
*Based on a proffered maximum of 53 dwelling units (Proffered Condition 4). The actual
number of dwelling units and corresponding impact may vary.
As noted, this proposed development will have an impact on capital facilities. Staff as calculated
the fiscal impact of every new dwelling unit on schools, roads, parks, libraries, and fire stations
at $15,648 per unit. The applicant has been advised that a maximum proffer of $15,600 per unit
would defray the cost of the capital facilities necessitated by this proposed development.
Consistent with the Board of Supervisors' policy, and proffers accepted from other applicants,
the applicant has offered cash to assist in defraying the cost of this proposed zoning on such
capital facilities. (Proffered Condition 1)
Note that circumstances relevant to this case, as presented by the applicant, have been reviewed
and it has been determined that it is appropriate to accept the maximum cash proffer in this case.
9
07SN 0353-SEP26- BOS- RPT
LAND USE
Comprehensive Plan:
Lies within the boundaries of the Southern and Western Area Plan which suggests the
property is appropriate for residential use of 2.51 to 4.0 units per acre.
Area Development Trends:
Properties to the north, south and east are zoned Agricultural (A) and are either occupied
by single family dwellings or are currently vacant. Properties to the west are zoned
Residential (R-40) and are developed as part of the Happy Hill Farms Subdivision. It is
anticipated that any development or redevelopment of area properties will be for
residential purposes consistent with densities recommended by the Plan.
Site Design:
As per the requirements of the Ordinance when seeking relief to provisions for second
access, a preliminary subdivision plan has been submitted. There is no requirement that
the property be developed in accordance with the plan. Although the plan depicts fifty-
four (54) lots, proffered conditions were amended to reflect a maximum of fifty-three
(53) lots accessed via a single access (Proffered Condition 4). It is also important to note
that the need for stub roads to adjacent properties will be evaluated at the time of
tentative plan review.
Density:
Proffered Condition 4 limits the development to fifty-three (53) lots, yielding a density of
approximately 1.7 dwelling units per acre.
Building Materials and Dwelling Size:
Proffered Conditions 5 and 6 address building materials and dwelling size.
CONCLUSIONS
The proposed zoning and land uses conform to the Southern and Western Area Plan which
suggests the property is appropriate for residential use of 2.51 - 4.0 units per acre. The proffered
conditions adequately address the impacts of this development on necessary capital facilities, as
outlined in the Zoning Ordinance and Comprehensive Plan. Specifically, the needs for roads,
schools, parks, libraries and fire stations is identified in the Public Facilities Plan, the
Thoroughfare Plan and the Capital Improvement Program, and the impact of this development is
discussed herein. The proffered conditions mitigate the impact on capital facilities, thereby
insuring adequate service levels are maintained and protecting the health, safety and welfare of
County citizens.
10
07SN 0353-SEP26- BOS- RPT
A second access for more than fifty (50) lots promotes accessibility to and from the development
in an emergency situation should one access be blocked. The application fails to identify any
extenuating circumstances in accordance with the provision of the Subdivision Ordinance that
prevents the provision of a second means of access.
Given these considerations, approval of the rezoning (Request I) is recommended. Denial of the
relief to street access requirements (Request II) is recommended.
CASE HISTORY
Planning Commission Meeting (7/17/07):
At the request of the applicant, the Commission deferred this case to August 21,2007.
Staff (7/18/07):
The applicant was advised in writing that any significant, new or revised information
should be submitted no later than July 23, 2007, for consideration at the Commission's
August 21, 2007, public hearing. Also, the applicant was advised that a $500.00 deferral
fee must be paid prior to the Commission's public hearing.
Applicant (7/26/07):
Proffered conditions were revised.
Applicant (7/30/07):
The deferral fee was paid.
Planning Commission Meeting (8/21/07):
The applicant accepted the Commission's recommendation. There was no opposition
present.
On motion of Mr. Wilson, seconded by Mr. Litton, the Commission recommended
approval and acceptance of the proffered conditions on pages 2 through 4.
AYES: Messrs. Gecker, Gulley, Bass, Litton, and Wilson
11
07SN 0353-SEP26- BOS- RPT
The Board of Supervisors, on Wednesday, September 26,2007, beginning at 6:30 p.m., will take
under consideration this request.
12
07SN 0353-SEP26- BOS- RPT
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