On the agenda: Caroline County meeting — Data Center (Mar 26)

1. CALL TO ORDER
2. PLEDGE OF ALLEGIANCE / INVOCATION
3. APPROVAL OF MINUTES
3.I. Meeting Minutes
Documents:
PC 02262026 DRAFT MEETING MINUTES.PDF
4. NEW BUSINESS
4.I. Petition For Text Amendment – Thrift Store - Article IV, Rural Preservation
Documents:
PC PACKET THRIFT STORE MARCH 26 2026.PDF
4.II. Petition For Text Amendment – Manufactured Home Sales
Documents:
PC PACKET MANUFACTURED HOME SALES MARCH 26 2026.PDF
5. ANY AND ALL MATTERS
6. ADJOURNMENT

At a regular meeting of the Caroline County Planning Commission, held Thursday,
February 26, 2026 in the Community Services Center Auditorium, located at 17202
Richmond Turnpike, Milford, Virginia, at the hour of 6:30 p.m.
Present
Dr. Horton
Steve Rollins
Robert Schwartz
Lee Tingler
Richard Williams
Absent
J.D. Young
Also Present
Max Hlavin, County Attorney
B. Leon Hughes, Planning Director
Craig Pennington, Planner
Brad Robinson, Zoning Administrator
Chairman Williams called the Regular Meeting to order.
Chairman Williams led the Pledge of Allegiance.
Dr. Horton led the Invocation.
APPROVAL OF MINUTES
Mr. Schwartz motioned and Mr. Tingler seconded to approve the January 26, 2026
minutes as presented.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
PUBLIC HEARINGS
Mr. Pennington read the Public Hearing Protocol
RZ-04-2025 - Partnership Blvd Properties, LLC, Owner; Caroline Commercial Development,
Inc., Owner / Rappahannock Electric Cooperative, Applicant: Request an amendment
to the approved proffered conditions of RZ-04-2005 on Tax Parcel Nos. 82-A-169, 82-21E, 82-21-F, 82-21-G, 82-21-H, 82-21-I, 82-21-J, 82-21-K, 82-21-L 82-21-1 and 82-21-2 zoned B1 Business, Conditional, and to apply proffered conditions to Tax Parcel Nos. 82-10-A and
82-10-C zoned B-1 Business, for the development of a corporate campus consisting of
60.48 acres. Amendments are proposed to Section 1, General; Section II Land Use;
Section III Transportation; and Section IV, Miscellaneous of the proffered conditions. The
subject properties are located at the northeast quadrant of U.S. Route 1 and Rogers Clark
Blvd., and further identified as 24061 Co-Op Drive and 24008 Partnership Drive in the
Mattaponi Voting District. The 2030 Comprehensive Plan designates these parcels as
Commercial/Office in the Carmel Church Growth Area.
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SPEX-10-2025 - Partnership Blvd Properties, LLC, Owner; Caroline Commercial
Development, Inc., Owner / Rappahannock Electric Cooperative, Applicant: Request a
Special Exception Permit in accordance with Article XVII, Section 13 (Standards for
Special Use Permits) and Article IX (B-1 Business) Section 3.18 of the Caroline County
Zoning Ordinance on Tax Parcel Nos. 82-A-169, 82-10-A, 82-10-C, 82-21-1, 82-21-2, 82-21E, 82-21-F, 82-21-G, 82-21-H, 82-21-I, 82-21-J, 82-21-K, and 82-21-L, consisting of 60.48 acres
for the development of private roads in a commercial development. The subject
properties are located at the northeast quadrant of U.S. Route 1 and Rogers Clark Blvd,
and further identified as 24061 Co-Op Drive and 24008 Partnership Drive in the Mattaponi
Voting District. The 2030 Comprehensive Plan designates this parcel as
Commercial/Office in the Carmel Church Growth Area.
SPEX-11-2025 - Partnership Blvd Properties, LLC, Owner; Caroline Commercial
Development, Inc., Owner / Rappahannock Electric Cooperative, Applicant: Request a
Special Exception Permit in accordance with Article XVII, Section 13 (Standards for
Special Use Permits) and Article XV (Supplemental Regulations) Section 15.6(2) of the
Caroline County Zoning Ordinance on Tax Parcel Nos. 82-A-169, 82-10-A, 82-10-C, 82-211, 82-21-2, 82-21-E, 82-21-F, 82-21-G, 82-21-H, 82-21-I, 82-21-J, 82-21-K, and 82-21-L,
consisting of 60.48 acres for buildings to exceed the maximum setback of 50 feet in the
Highway Corridor Overlay District. The subject properties are located at the northeast
quadrant of U.S. Route 1 and Rogers Clark Blvd, and further identified as 24061 Co-Op
Drive and 24008 Partnership Drive in the Mattaponi Voting District. The 2030
Comprehensive Plan designates this parcel as Commercial/Office in the Carmel Church
Growth Area.
SPEX-12-2025 - Partnership Blvd Properties, LLC, Owner; Caroline Commercial
Development, Inc., Owner / Rappahannock Electric Cooperative, Applicant: Request a
Special Exception Permit in accordance with Article XVII, Section 13 (Standards for
Special Use Permits) and Article XV (Supplemental Regulations) Section 15.7(B)(2) of the
Caroline County Zoning Ordinance on Tax Parcel Nos. 82-A-169, 82-10-A, 82-10-C, 82-211, 82-21-2, 82-21-E, 82-21-F, 82-21-G, 82-21-H, 82-21-I, 82-21-J, 82-21-K, and 82-21-L,
consisting of 60.48 acres to allow parking in the front setback in the Highway Corridor
Overlay District. The subject properties are located at the northeast quadrant of U.S.
Route 1 and Rogers Clark Blvd, and further identified as 24061 Co-Op Drive and 24008
Partnership Drive in the Mattaponi Voting District. The 2030 Comprehensive Plan
designates this parcel as Commercial/Office in the Carmel Church Growth Area.
SPEX-13-2025 - Partnership Blvd Properties, LLC, Owner; Caroline Commercial
Development, Inc., Owner / Rappahannock Electric Cooperative, Applicant: Request a
Special Exception Permit in accordance with Article XVII, Section 13 (Standards for
Special Use Permits) and Article IX (B-1 Business) Section 3.14 of the Caroline County
Zoning Ordinance on Tax Parcel Nos. 82-A-169, 82-10-A, 82-10-C, 82-21-1, 82-21-2, 82-21E, 82-21-F, 82-21-G, 82-21-H, 82-21-I, 82-21-J, 82-21-K, and 82-21-L, consisting of 60.48 acres
for the development of a free-standing Tower. The subject properties are located at the
northeast quadrant of U.S. Route 1 and Rogers Clark Blvd, and further identified as 24061
Co-Op Drive and 24008 Partnership Drive in the Mattaponi Voting District. The 2030
Comprehensive Plan designates this parcel as Commercial/Office in the Carmel Church
Growth Area.
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Mr. Pennington provided a staff report for all five cases
The applicant is requesting approval of a Proffer Amendment to rezoning case RZ-042005 for an office park and maintenance facility pursuant to Article IX, Section 2.22 of the
Zoning Ordinance. In November 2005 the Caroline County Board of Supervisors approved
a rezoning on the subject properties, with the exception of 82-10-A and 82-10-C, for the
Atlantic Union Bankshares Corporate office park. The property was developed with the
Atlantic Union Bankshares main office and the Culpeper Farmer’s Co-Op structure. The
remainder of the property was subdivided creating nine parcels ranging in size from .85
acres to 12.45 acres. The parcels are zoned B-1 and remains undeveloped.
The properties total 60.48 acres and are bounded to the west by U.S. Route 1 with 3.48
acres of B1 zoned property containing a retail store and 14.75 acres of RP zoned property
containing a single family home; directly to the south by the Econo Lodge and Days Inn
hotels and a five acre B-1 zoned parcel; to the south on the south side of Rt. 207 at the
intersection of u. s. Rt.1 by 16 acres of land zoned B-1 containing a restaurant, retail shop,
day care and Moose Lodge, and a 12.5 acre parcel that is vacant; to the east by the
US Post Office and 9 acres of vacant land zoned B-1 located on Welcome Way Drive;
and to the north by 63.58 acres of vacant land zoned B-1 and 36.45 acres of vacant RP
zoned land adjacent to US Route 1.
Generalized Development Plan (GDP)
The applicant’s Generalized Development Plan (GDP) for the project proposes to utilize
the Former Atlantic Union Bankshares building and parking area as a corporate office
building. An addition to the existing office building is proposed. The former Culpeper
Farmer’s Co-Op building is proposed to be demolished and replaced with a fleet service
building. A covered storage building is shown along the northern property line adjacent
to a vacant parcel zoned b-1. an outdoor gravel storage/laydown yard is depicted in
the center of the project area. A new shop building, covered vehicle storage and
warehouse building and a fuel island and fuel tanks are proposed toward the side of the
property along U.S. Route 1. The applicant has not indicated the proposed square
footage of the proposed buildings. The GDP depicts the buildings with a maximum
height of 40 feet and meeting the required setbacks of the B-1 district. The proposed
design of the site does not meet required HCOD setbacks, and is requesting a special
exception to remove the maximum setback of 50 feet. Associated parking areas for the
buildings and stormwater management ponds are also shown on the GDP.
The
proposed buildings are approximately between 650 and 1200 feet from the nearest
existing single-family homes located across Route 1 west of the subject property along
Telegraph Road (657).
The current configuration of the site contains 13 parcels and is accessed via Integrity Way
from U.S. Route 1. Partnership Boulevard is an internal roadway and provides access to
the individual parcels. Both Integrity Way and Partnership Boulevard are dedicated
rights of way for public use, but not accepted in the system of secondary highways.
access to the site is proposed remain from the existing entrance on U.S. Route 1 via
Integrity Way The site entrance has right and left turn lanes in place, constructed with
the development of the property. The proposed proffer amendments include vacating
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the existing rights of way of Integrity Way and Partnership Boulevard as all internal
roadways would become private access roads serving the development. Integrity Way
and Partnership boulevard were constructed with the plans that the out parcels would
develop as a commercial subdivision with public roads. It is the intent to consolidate the
out parcels with approval of this proffer amendment, and the entirety of the property
would be utilized by the applicant as noted on the GDP. The applicant is requesting the
abandonment of the existing right of way for the two internal roadways.
Lorraine Drive is currently constructed from US Route 1 to the intersection with Partnership
Boulevard with existing right and left turn lanes on US Route 1. The GDP proposes to
extend Lorraine Drive to the eastern property line of the project as a vehicle entrance for
office employees that would bypass the maintenance area for safety. Should Lorraine
Drive be extended to Welcome Way Drive in the future, the Applicant proffers to
dedicate the right of way at that time. This case proposes to construct Lorraine Drive in
the same location and design as the previously approved case.
Amin Drive is currently constructed from Rogers Clark Boulevard (Route 207) to the
entrance of the existing Econo Lodge Motel. The GDP proposes extending Amin Drive to
Lorraine Drive as the original Rezoning contemplated and provided a right turn lane from
Route 207 onto Amin Drive. The GDP proposes to dedicate 72 feet from the centerline of
U.S. Route 1 in accordance with the original rezoning of the property. Only a portion of
the dedication was previously provided. A shared use path is shown within the right of
way dedication on US Route 1 and along the right of way of Route 207.
The GDP proposes Highway Corridor Overlay District landscaping buffers along the US
Route 1 and Route 207 portions of the property. The project proposes to maintain
approximately 25 acres in open space along most property boundary lines to minimize
visual impacts.
The GDP also shows four (4) future development areas in the southwest portion of the site.
These future development areas may be utilized by the Applicant in the future or sold for
development by others. Some high intensity uses have been proffered out by the
Applicant limiting the future development.
Environmental Issues
The project site development will be subject to the County’s Chesapeake Bay
regulations. The GDP depicts the northwestern portion of the property as containing
Resource Protection Areas (RPAs) and wetlands along with another small wetland area
to the north of existing Lorraine Drive. The proposed layout does not depict any structures
located within environmentally sensitive areas which minimizes impacts. The project
proposes preserving approximately 25.38 acres of open space to naturally buffer the
property. Should the special exception request be approved, the Department of
Environmental Quality (DEQ) will review plans for compliance with stormwater
management Regulations.
Traffic Impacts
The existing entrance for the project is from US Route 1 via existing Integrity Way. Integrity
Way and Partnership Boulevard are currently existing public roadways within the project
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area. The Applicant proposes to vacate the existing right of ways for Integrity Way and
Partnership Boulevard to incorporate the vacated land area into the site design. All
internal roadways would remain private should this proffer amendment be approved.
Integrity Way is approximately 1,660 feet north of the intersection of US Route 1 and Route
207 and has existing right and left turn lanes in place.
Lorraine Drive will also be utilized as an entrance to the project for office employee
vehicular traffic. Lorraine Drive is approximately 775 feet north of the intersection of US
Route 1 and Route 207 and has existing right and left turn lanes in place. Currently,
Lorraine Drive is constructed from US Route 1 to the intersection with existing Partnership
Boulevard. Lorraine Drive will be extended to the eastern property line and is proposed
to be a private road. The Comprehensive Plan contemplates fewer curb cuts along
Route 207 and access to parcels via access roads and drives to reduce traffic on Route
207. The extension of Lorraine Drive with a possible future connection to Welcome Way
Drive is consistent with achieving this goal. Should an extension of Lorraine Drive occur
in the future, the Applicant proposes to dedicate Lorraine Drive to public use at that time.
Amin Drive will be used as an entrance to the property for westbound traffic from Route
207. Currently Amin Drive is constructed from Route 207 to the entrance of the Econo
Lodge motel. The Applicant proposes to extend Amin Drive to Lorraine Drive and for
Amin Drive to remain a private roadway. A right turn lane is proposed to be constructed
along Route 207 for Amin Drive. The turn lane will impact one of the existing entrances
for the Days Inn hotel located on the adjacent property to the west of Amin Drive.
The Applicant has provided a Traffic Impact Analysis(TIA) for the project that has been
reviewed by the County and VDOT. The TIA anticipates an additional 2,488 daily trips for
the site. Based on the TIA there are no roadway improvements recommended to
accommodate the additional trips generated by the project. A turn lane warrant
analysis was also provided with the TIA. The turn lane warrant analysis recommends that
a westbound right turn lane and taper be installed at the Route 207 and Amin Drive
intersection. This improvement is proposed with the application.
According to VDOT data from 2024, the annual average daily traffic (AADT) on the 6.14
Mile segment of US Route 1 between the Route 207 intersection and the 639 (Ladysmith
Road) intersection was 11,000 vehicles per day. The AADT on the .5 mile segment of
Route 207 between the US Route 1 intersection and Interstate 95 was 7,700 vehicles per
day.
Public Utilities
The project will be served by public water, sewer and electric utilities. Existing water and
sewer infrastructure are contained within the site. Public Utilities has provided comments
that the site/proposed uses can be served by public water and sewer.
General Discussion
The Applicant plans to utilize this property for the REC Corporate Campus offices and
maintenance facilities for approximately 405 employees. Approximately 10% will be new
employees, and this facility will relocate existing staff from the Bowling Green and

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Fredericksburg REC offices. The site will be utilized for staff training for office staff, lineman
staff and safety training.
The current structure located on the property, formerly the Atlantic Union Bankshares
building, will be expanded and used for daily office operations for Rappahannock
Electric Co-Op. The former Culpeper Farmer’s Co-Op structure is proposed to be
demolished and replaced with a fleet service building to be used for maintenance of the
REC trucks and equipment. The applicant proposes a new shop building and a covered
vehicle, storage and warehouse building. The applicant proposes a second covered
storage building along with outdoor storage and laydown yard internal to the site. This
site will be utilized for all aspects of daily operations for REC.
This application is a proffer amendment and proposes to revise the original proffers
associated with RZ-04-2005. The new proffer statement proffers to replace the original
GDP with the GDP associated with this request. The new proffers remove the road
improvements that were required for Integrity Way and Partnership Way as they were
constructed in accordance with the previous rezoning. The Amendments also proposes
to vacate the rights of way of Integrity Way and Partnership Way. The Land Use Section
of the proffers propose to remove the restriction of uses that require a Special Exception
permit and has provided other uses that would be restricted on the property. An existing
proffer restricting the size of structures to be utilized has been removed. The
transportation proffers associated with the previous case have also been removed as
they are no longer applicable with this request. The new and remaining portions of the
proffer statement are detailed in the proffer analysis in this staff report.
The 2030 Caroline County Comprehensive Plan designates this area as
Commercial/Office within the Carmel Church Community Plan. This proposal intends to
utilize the property for office use, storage and maintenance of their equipment. The
recent development pattern on this portion of Route 207 has been consistent with the
goals of the comprehensive plan. Route 207 has developed with restaurants,
convenience stores, and industrial complexes in the surrounding areas. The use of office,
storage, and maintenance is a by right use in the B-1 district and is consistent with the
development patterns along the corridor. This request is consistent with the
Comprehensive Plan.
Caroline County is currently working on a Smart Scale Application for improvements to
the intersection at Route 207 and US Route 1 that would add pedestrian
accommodations, a right turn lane on Route 207 for traffic traveling northbound on U.S.
Route 1, and other roadway improvements. The applicant has proffered right of way
dedication, turn lane installation and shared use path construction along the Route 207
and U.S. Rt. 1 . The dedication of right of way and pedestrian improvements complement
the SmartScale Application and further goals identified in the comprehensive plan.
All comments provided by the reviewing agencies have been addressed with the
exception of the turn lane design at Amin Drive and Route 207.
Other comments issued during the review process were regarding labeling and
clarification of items shown on the GDP.
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The following proffers are offered by the Applicant. Staff analysis of each proffer is
provided in bold and italicized text after each proposed proffer.
I.

General requirements.
a. The applicant hereby proffers the amended conditions listed herein (the
“amended proffers”) which will be applicable to the property if this proffer
amendment application is approved. The applicant acknowledges that these
conditions are voluntary and reasonable in accordance with section 15.22298, et al. Of the code of Virginia (1950, as amended), and article xvii, section
12(m) of the zoning ordinance of Caroline county, Virginia (the “code”). The
headings for the amended proffers set forth below have been prepared for
convenience or reference only and will not control or affect the meaning or
be taken as an interpretation of any provision of the amended proffers. The
amended proffers provided herein are the only proffered conditions offered in
this proffer amendment application, and any prior proffers in which the
property may be subject to (whether of record or not) are hereby superseded
and replaced by these amended proffers; and further, all said prior proffers will
be void and of no further force and effect as applied to the property upon the
county’s board of supervisors’ approval of the applicant’s above-referenced
proffer amendment application, RZ-04-2025 and SPEX permit applications
SPEX-10-2025, SPEX-11-2025, SPEX-12-2025, and SPEX-13-2025.
b. Subject to the terms and conditions expressed hereunder, the property will be
developed in substantial conformance with the GDP, marked as Exhibit A, and
incorporated herein by this reference. Notwithstanding anything to the
contrary under these amended proffers, all open space areas, parcel lines,
parcel and lot sizes, building envelopes, building or unit sizes, public road
locations, access points, private driveway and travel-way locations, accessory
use locations, signage location, waste facilities, interparcel connections,
parking areas, utility locations, storm water management facilities, amenities,
dimensions of undeveloped areas and all other areas shown on the GDP, as
applicable, may be adjusted for purposes of final engineering of site or
subdivision plans (via multiple phases) and to further allow compliance with
the requirements of state and federal agency regulations including, but not
limited to, Virginia department of historical resources, Virginia department of
transportation (“VDOT”), Virginia department of environmental quality, Virginia
department of conservation and recreation, U.S. Army Corps of Engineers, and
the County’s code, subdivision ordinance, and design standards.
Notwithstanding the foregoing, material adjustments to the GDP will be subject
to the review and approval of the County’s Zoning Administrator.
This proffer commits to the general design of the site. The GDP is conceptual in
nature and the internal circulation of the site and exact building location is not
known at this time. The GDP commits to the access locations and roadway
improvements. While staff is generally supportive of this proffer as written, there
are concerns of the amount of flexibility that are left open to staff interpretation.

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II.

Land Use.
a. Prohibited uses. The property may be developed for one or more permitted
uses within the b-1, business, zoning district, except the following uses shall not
be permitted on the property:
i. Drug Stores
ii. Barber and beauty shops
iii. Funeral homes
iv. Clothing stores and tailor shops
v. Dry cleaners and laundries
vi. Libraries
vii. Medical offices and clinics
viii. Florist shops
ix. Retail stores
x. Churches
xi. Antique shops and gift shops
xii. New car sales, bicycle, and home appliance sales and services
xiii. Hotels and motels
xiv. Nurseries and greenhouses
xv. Printing, publishing, and engraving services
xvi. Shoe repair
xvii. Clubs and lodges
xviii. Seasonal events
xix. Brewery, limited
xx. Distillery, limited
xxi. Commercial kennel, indoor
b. Exterior materials. Buildings shall be constructed primarily of brick, glass, split
face block, architectural precast concrete, pre-finished aluminum storefront,
pre-finished metal panels, cementitious or composite-type siding, stone,
marble or granite, E.I.F.S. as exterior accent, or a combination of the foregoing,
or other materials of similar quality with respect to the exposed portion of any
such wall. No painted or unfinished concrete block, sheet or corrugated
unfinished aluminum, asbestos, or unfinished metal, wood, hardboard, and/or
vinyl siding shall be used on the exterior of any building.
c. Roof materials. Buildings shall be constructed with a typical pre-engineered
metal building roof (e.g., galvalume or substantially similar roofing).
d. Refuse container enclosure. Enclosures for refuse containers shall be
constructed of finished masonry materials with the exception of gates and
doors. Gates and doors shall be opaque, substantial, and oriented to minimize
views of the enclosures from public rights-of-way. Concrete pavement shall be
e. used for the refuse container pad and apron.

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f.

Mechanical equipment. Ground level mechanical equipment shall be
screened from public view at ground level from the perimeter of the property
by at least one opaque material, which will be determined at the time of site
plan. All rooftop equipment, including, mechanical, ventilation, ducts,
supports, etc. Placed on the roof-top within public view from adjacent public
roadways shall be screened in a manner consistent with building style and
materials.

This proffer restricts some uses that would be allowed on the property. This proffer also
commits to the design of materials to be used such as exterior building materials and
roof materials, and the design and screening of refuse containers and mechanical
equipment. Staff is supportive of this proffer.
III.

Transportation. Subject to the County and/or VDOT’s approval, as may be
required, the applicant will:
a. Prior to the county’s issuance of a certificate of occupancy for the first building
constructed on the property, the applicant will:
i. At the intersection of Amin drive and route 207 (Rogers Clark
boulevard):
1. Construct a westbound right turn lane with three-hundred feet
(300') or storage and a one-hundred foot (100') taper at the
intersection of Rogers Clark boulevard (VA 207); and
ii. Extend Amin drive, as depicted on sheet 5 of the GDP.
iii. Construct a sidewalk or shared-use path along Amin Drive, as depicted
on sheet 6 of the GDP. The county shall determine whether the
improvement will be a sidewalk or a shared-use path prior to approving
the site plan that incorporates such improvement.
This proffer commits to the roadway improvements at Amin Drive including the turn
lane and taper as required by the turn lane warrant analysis. Staff is supportive of
this proffer.
b. Within one-hundred and twenty (120) days of this proffer amendment
application’s approval, unless the County authorizes or requires a later date,
the applicant will:
i. Dedicate to the county 0.6 acres of public right-of-way along U.S. Route
1; and
ii. Dedicate to the county 0.10 acres of public right-of-way along route
207 (Rogers Clark Boulevard).

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This proffer commits to the dedication of roadway along US Route 1 and Route 207
as needed for VDOT and pedestrian accommodations. Staff is supportive of this
proffer as it completes the required dedication from the original rezoning case and
will place the shared use path within the VDOT right of way for maintenance.
c. Within six months of the complete connection of Lorraine Drive to Welcome
Way, which may be constructed in the future by the applicant, the county or
others, the applicant will dedicate those portions of Lorraine Drive under its
ownership or control to the county for public right-of-way.
This proffer commits to the dedication of Lorraine Drive at a future time should
Lorraine Drive be extended to Welcome Way Drive. Staff is supportive of this proffer
as the extension of Lorraine Drive as a public roadway could reduce traffic on
Route 207 from Welcome Way drive.
d. Within one (1) year of this proffer amendment application’s approval, the
applicant will request that the County abandon and release the existing rightof-way consisting of approximately 3.35 acres (the “existing right of way”) as
depicted on sheet 5 of the GDP.
i. Upon the satisfaction of the foregoing proffer iii(d), the existing right of
way will be zoned from public right-of-way to b-1.
ii. Within twelve (12) months of the county’s abandonment of the existing
right of way, the applicant will submit an applicable plat to consolidate
the existing right of way into the property.
This proffer commits to the abandonment of the existing public right of ways for
Integrity Way and Partnership Boulevard internal to the project. All internal
travelways will be privately maintained. Staff is supportive of this proffer as there
would not be a need for public right of ways internal to the REC operations area.
e. Dimensions. Dimensions of all areas of dedication, sidewalks, shared-use paths,
turn lanes, including storage and tapers, depicted on the GDP will be
confirmed and determined with final engineering prior to site plan approval
subject to county and VDOT approvals, as applicable.
This proffer commits that all dedications and installations of roadway
improvements and pedestrian accommodations will be constructed in
accordance with VDOT regulations. Staff is supportive of this proffer.
IV.

Miscellaneous.
a. Phasing. The project will be phased as noted on the GDP, sheet 5.

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b. Consolidation. Within twelve (12) months of this proffer amendment
application’s approval, the applicant will submit an applicable plat to
consolidate the property, with the exception of tax map parcels 82-10-a, 8210-c, and 82-a-169 which will remain separate parcels.
This proffer commits to the phasing noted on the GDP and the consolidation of the
parcels internal to the project. The phasing notes state that the existing building
located on the site will be renovated in the first phase and all other improvements
will be considered phase two. Staff is supportive of this proffer.
Special Exception Requests
The applicant proposes to utilize the former Atlantic Union Bankshares Building and
parking area as a corporate office building. The proposed redevelopment of the subject
properties requires approval of several special exception requests outlined below, in
addition to a proffer amendment (RZ-04-2025) as detailed in the staff report associated
with that case.
SPEX-10-2025 Private Roads
The applicant is requesting a Special Exception permit pursuant to Article IX, Section 2.18
and Article XV, Section 8(L) of the Caroline County Zoning Ordinance in order to
designate certain roadways as private roads including Lorraine Drive, Amin Drive and
portions of Partnership Blvd and Integrity Way. The proffers for the companion proffer
amendment propose to vacate right of way for portions of Integrity Way and Partnership
Drive currently contained within the development area. The vacated portions of Integrity
Way and Partnership Boulevard will be incorporated into the site as internal travelways
for use by maintenance trucks, storage, warehousing, and internal traffic circulation. This
request includes Lorraine Drive until such time as the dedication to public use becomes
required by the proffer statement in the associated proffer amendment.
Suggested Conditions
1. The To-wit (approval letter) for this Special Exception Permit shall be recorded in the
Office of the Circuit Court of Caroline County within 30 day of receipt from the
Department of Planning and Community Development.
2. Private roads as shown on Sheet 6 of the GDP for REC Corporate Campus,
designed by Bowman Consulting with the revision date of February 18, 2026 shall
be constructed to state standards in case of future inclusion into the secondary
road system.
3. The entirety of Lorraine Drive as shown on Sheet 6 of the GDP for REC Corporate
Campus, designed by Bowman Consulting with the revision date of February 18,
2026, shall be constructed to state standards for future inclusion into the secondary
road system.
SPEX-11-2025 Highway Corridor Overlay District (HCOD) Setbacks
The applicant is requesting a Special Exception Permit pursuant to Article XV, Section
15.6(2) of the Caroline County Zoning Ordinance in order to increase the maximum front

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yard setback from Route 1 above 50 feet. Article XV, Section 15.6(2) of the Zoning
Ordinance requires that “Within a designated growth area, but outside of the
Commercial Services Corridor, the maximum setback for non-residential structures
fronting on a road designated in Section 15.2 above shall be fifty (50) feet from the edge
of the Ultimate VDOT right of way as designated in the Comprehensive Plan.” This
requirement is to encourage site access and parking be located to the rear of structures
from access roads or interparcel connections. The associated GDP shows structures
located a minimum of eighty (80) feet from the Ultimate VDOT right of way. Given the
acreage of the project and number of structures that will be utilized, as designed this
request will not impact the HCOD roadways.
Suggested Conditions
1. The To-Wit (approval letter) for this special exception permit shall be recorded in the
Office of the Circuit Court of Caroline County within 30-days of receipt from the
Department of Planning and Community Development.
SPEX-12-2025 Highway Corridor Overlay District (HCOD) Parking
The applicant is requesting a Special Exception Permit pursuant to Article XV, Section
15.7(B) of the Caroline County Zoning Ordinance in order to allow parking areas within
the front yard along Route 1. Article XV, Section 15.7(B) of the Zoning Ordinance requires
that “all parking areas shall be located to the interior or rear of non-residential structures.”
This requirement is so that the design of commercial properties along the HCOD
roadways have access and parking in the rear from a service drive and interparcel
connections and the structure can be seen from the right of way. The associated GDP
shows some parking areas that are located in the front area of buildings (i.e. between
the structure and property line at the HCOD designated roadway). The applicant is also
requesting an increased setback for the structures on the property. As designed with
increased setbacks, landscaping and buffering along the roadways, this request will not
impact the HCOD roadways.
Suggested Conditions
1. The To-Wit (approval letter) for this special exception permit shall be recorded in the
Office of the Circuit Court of Caroline County within 30-days of receipt from the
Department of Planning and Community Development.
2. All parking areas shall be screened from view from US Route 1.
SPEX-13-2025 Communication Facility
The applicant is requesting a Special Exception Permit pursuant to Article IX, Section 2.14
of the Caroline County Zoning Ordinance in order to design and construct a private radio
communication tower for internal REC use. Article XV, Section 8(B) of the Zoning
Ordinance was amended in February 2026 to allow private radio towers in excess of 199
feet for public utility companies or governmental entities, or as an emergency services
communication facility. The applicant is proposing the construction of a 250’ private
communication facility for internal dispatch and daily communication as needed. The
location of the tower site is shown on Page 5A of the GDP at the eastern property line to
the rear of the existing building to be renovated as an office for the REC Corporate
Campus. Viewshed simulations for the tower have been provided by the applicant.

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February 26, 2026 – Planning Commission Summary Minutes

Suggested Conditions
1. The To-Wit (approval letter) for this special exception permit shall be recorded in the
Office of the Circuit Court of Caroline County within 30-days of receipt from the
Department of Planning and Community Development.
2. Screening via Landscaping and/or fencing shall be maintained around the
equipment compound.
3. The tower shall be designed to collapse within the fall zone provided on the plan.
General Standards
In accordance with Article XVII, Section 13.D. of the Caroline County Zoning Ordinance,
all use permits including special exceptions shall satisfy the following general standards.
Staff has included an analysis of each standard.
1. The use shall not adversely affect the character and established pattern of

development of the area in which it wishes to locate.
This project is located on existing parcels that were previously rezoned for a
commercial subdivision and shall be utilized as offices and maintenance facilities.
This area is described as commercial/office in the Carmel Church Community Plan.
This request is consistent with the above standard.
2. The use shall be in harmony with the uses permitted by right under a zoning permit in

the zoning districts and shall not affect adversely the use of neighboring properties.
The uses utilized for this project are located within the existing B-1 zoned property and
are by-right uses. This request is consistent with the above standard.
3. The location and height of buildings, the location, nature and height of walls and

fences, and the nature and extent of landscaping on the site shall be such that the
use will not hinder or discourage the appropriate development and use of adjacent
or nearby land and buildings or impair the value thereof.
The property is designed in accordance with the Caroline County Zoning Ordinance
and provides landscaping and buffering at the property lines of the project. This
request is consistent with the above standard.
4. The use shall not adversely affect the health or safety of persons residing or working in

the neighborhood of the proposed use.
The use of the property will be for offices, storage, and maintenance facilities. The use
will not adversely affect the health or safety of persons residing or working in the
neighborhood. This request is consistent with the above standard.
5. The use shall not be detrimental to the public health, safety or welfare or injurious to

property or improvements in the neighborhood.
There are no intense uses that would produce detrimental health, safety, or welfare
concerns for this project. This request is consistent with the above standard.
6. The use shall be in accordance with the purposes of the zoning regulations contained

in this Ordinance and the Comprehensive Plan of Caroline County.

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February 26, 2026 – Planning Commission Summary Minutes

This use is permitted in the B-1 district by-right. The comprehensive plan designates
this area as appropriate for commercial/office use. This request is consistent with the
above standard.
7. Adequate utility, drainage, parking, loading and other necessary facilities to serve the

proposed use shall be provided.
The site has existing utilities available to the project. This request is consistent with the
above standard.
8. The use shall be such that air quality, surface and groundwater quality and quantity,

are not degraded or depleted to an extent that would hinder or discourage the
appropriate development and/or use of adjacent or nearby land and/or buildings or
impair the value thereof.
This site will be reviewed by DEQ at the time of site plan for compliance with air quality,
surface and groundwater quality and quantity. This request is consistent with the
above standard.
9. The use shall be such that pedestrian and vehicular traffic generated will not be

hazardous or conflict with the existing and anticipated traffic in the neighborhood
and on roads serving the site.
A TIA and turn lane warrant analysis was completed by the applicant that states the
traffic generated by the use will not be in conflict with exiting traffic on the existing
roadways. This request is consistent with the above standard.
Planning Commission Comments/Questions
Mr. Schwartz said the Planning Department, from a comment in the staff report, is not
wholly satisfied with the change in the GDP. He said he’s never made it a secret that if
the Planning Department is not happy, this Commissioner is not happy. What issues do
they have regarding that.
Mr. Pennington said the statement providing conformance with the GDP states that it
can be changed for engineering purposes not just for County, State or Federal
requirements. Usually staff requests that flexibility for engineering is not in that statement.
Mr. Schwartz said he would like to see that issue resolved. Secondarily what variance of
the HCOD are they seeking.
Mr. Pennington said they are requesting a special exception to the maximum setback.
The HCOD along Route 1 states that the maximum setback for a building shall be 50’ from
the roadway. They are requesting to move their building back to 83’ so they are farther
off the roadway and can provide gated access at Integrity Way.
Mr. Schwartz said he didn’t see any problem there and thanked Mr. Pennington for the
clarification.

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February 26, 2026 – Planning Commission Summary Minutes

Mr. Pennington said they are also asking for variance to the HCOD parking requirement
that says all parking shall be in the rear. Because their buildings are pushed back off the
roadway they have a couple parking spaces that are in front of the building.
Dr. Horton asked how many parking spaces are in the front?
Mr. Pennington said approximately 20. There’s 12-15 in front of the maintenance shop
and 8-12 in front of the fleet services building.
Dr. Horton said the spaces have to be shielded with shrubs, etc.
Mr. Pennington said there is a suggested condition that all front yard parking be shielded
from Route 1.
Dr. Horton said are any of the roads considered VDOT roads?
Mr. Pennington said all the right of way has been dedicated but VDOT won’t accept a
road until a certain number of users are utilizing the road for access. With only the two
buildings in the subdivision, VDOT is not taking over the roads at this time.
Dr. Horton asked about the two entrances.
Mr. Pennington said there would be two entrances off of Route 1, Integrity Way and
Lorraine Drive and one available entrance off Route 207 at Amin Drive.
Mr. Pennington noted the proffers being proposed are above and beyond the previous
proffers for the case.
Applicants Presentation
Charlie Payne with Hirschler representing the Applicant provided a Powerpoint
presentation highlighting key points of the request(s).
Representatives from
Rappahannock Electric Coop (REC) and the engineering team were also present.
Mr. Payne said for purposes of the proffer as noted in the staff report, their proffers are
currently very restrictive as to what they can do when they get to the site plan stage. This
is just a general plan. When they get to a final design stage, they submit a site plan and
building plans. This requires more engineering and design work. What they try to do in lieu
of it being so restricted that they have to 100% follow the GDP, they like to be able to
move things around. It doesn’t mean they are making them any bigger or adding any
different uses. It just means when they get to the final design, they want to be able to
make some adjustments.
Typically what has been proffered in the past is general conformance but what has been
proffered here is substantial conformance with the GDP. Only if they make an adjustment
that is not consistent with the GDP it requires the Zoning Administrator to approve it. He
wanted to make sure that was clarified.

15

February 26, 2026 – Planning Commission Summary Minutes

Mr. Hughes speaking to Mr. Schwartz earlier comment said that language was a
comment he made to staff that during the “track changes” process didn’t get stricken.
The discussion was that because everything was internal, there wouldn’t be any impacts
to the surrounding community if they made adjustments within the compound.
He said staff didn’t have any real concern with the GDP because it’s a unique situation
where all of the commitments to the GDP are internal and if they were to completely flip
the site it wouldn’t have any negative impacts to the surrounding properties.
Mr. Schwartz said that cleared the air.
Mr. Rollins asked about Amin Drive and the merge lane on Route 207 impeding the
entrance to the existing hotel.
Mr. Payne said this was part of the transportation analysis that they worked on with the
County and VDOT and this is what was recommended so that is what they have done.
Mr. Rollins asked if only the employees would be accessing the internal roads or would
customers also be using them.
Mr. Payne said the main employee access would be off of Lorraine Drive.
Jason Satterwhite with REC said members would have access to the main building to pay
bills as they do today. But that is very minimal.
Mr. Rollins said his biggest concern would be coming out of the site onto Route 1 as there
is no acceleration lane from Lorraine or Integrity for the trucks carrying equipment, poles,
etc. What are the lengths of the truck, etc.
Mr. Satterwhite said it’s a typical commercial truck, pole lengths vary from 35’- 50’
typically. They shared that information with VDOT with regard to an acceleration lane
and VDOT did not make any comment.
Mr. Rollins asked about the 3+ acres of right of way the County would release and rezone
back to B-1.
Mr. Payne said the good news is that the State wouldn’t have to maintain that right of
way going forward. That right of way was for the sole purpose of this park. Given that it’s
a secure site, after discussions with staff and VDOT it was deemed reasonable that they
would vacate that right of way since it’s only being utilized for REC’s use and operations.
Mr. Rollins asked with regard to the tower being for private radio communications internal
to REC for dispatch and other communications. What would “other communications”
be?
Mr. Satterwhite said they have the same tower at their Bowling Green office. It’s for
microwave and data communications from office to office or truck to truck. Mainly for
the two-way radios to communicate with the crews.
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February 26, 2026 – Planning Commission Summary Minutes

Mr. Rollins asked if the height of the current tower at the Bowling Green location is 190’.
Mr. Satterwhite said he believes it is. They had to go taller with this site to keep the site
lines between this site and the towers at Fredericksburg and Dawn.
Mr. Schwartz asked if VDOT had any issues with vehicular traffic turning off of Route 1 onto
Lorraine or Integrity during peak hours. Did they recommend any traffic control devices.
Mr. Payne said nothing other than what’s already in place today.
Dr. Horton asked if there was an estimated time for build-out.
Mr. Satterwhite said if all goes as planned, they would do this project in two phases. The
renovation of the Atlantic Union building would start in quarter three of 2026 with
completion in 2027. Then quarter three of 2027 to 2029 would be the rest of the build out.
They have to do it in two phases due to their funding mechanism.
Dr. Horton asked if the tower, being on the edge of the property, close to I-95, would be
a problem.
Mr. Pennington said the parcel behind the tower is vacant at this time. Towers are
designed to collapse on themselves so it should not cause an issue. The view sheds in the
packet, as provided by the applicant, show what the tower would look like from I-95,
from Route 1 and from Route 207. It shouldn’t impact any neighboring properties.
Dr. Horton asked about the owner and zoning of the property behind the tower,
Mr. Pennington said he didn’t know the owner off the top of his head but it was zoned B1 Business.
Dr. Horton asked if the
developed.

the southwest corner, horse-shoe shaped area would be

Mr. Pennington said that was a future development area. It could be for REC to develop
or they could parcel it off to another entity.
Mr. Satterwhite said the future development left of Lorraine would be for REC because
it’s within their corporate footprint. The properties to the right of Lorraine could be
explored for REC development or some other type of development.
Mr. Payne said that was done to ensure consistency with the Comprehensive Plan. That’s
why they didn’t proffer for only an office/warehouse use. There could be another B-1
viable use along Rogers Clark Blvd.
Mr. Rollins asked about the intent / reason for the 50’ HCOD setback. He thought there
was a minimum but not a maximum setback.

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February 26, 2026 – Planning Commission Summary Minutes

Mr. Pennington said Route 1 is in the HCOD only with a minimum setback of 20’ and a
maximum setback of 50’. The reason is that a commercial entity would want a store to
be closer to the road so it can be seen, with parking in the rear.
Route 207 is in the HCOD and also the CSC (Commercial Services Corridor). The CSC
removes the maximum setback. The purpose is to bring the store to the front and the
parking behind. In this case it’s not a storefront to be utilized by citizens so pushing the
buildings back off the road made sense.
Mr. Payne said along that frontage they have a 20’ landscape buffer and a shared use
path. To ensure security and public safety they need the setback beyond 50’.
Chairman Williams opened the Public Hearing/Closed, no speakers.
Mr. Schwartz motioned and Chairman Williams seconded, whereas Rezoning Request RZ04-2025 for Partnership Blvd Properties, LLC, Owner; Caroline Commercial Development,
Inc., Owner / Rappahannock Electric Cooperative, Applicant appears to be generally
consistent with the goals and objectives of the Comprehensive Plan and Future Land Use
Map, and whereas the public necessity, convenience, general welfare and good zoning
practices warrants the approval of this request, I recommend that RZ-04-2025 be
forwarded to the Board of Supervisors with a recommendation of approval.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
Mr. Rollins motioned and Mr. Tingler seconded, whereas Special Exception request SPEX10-2025 for Partnership Blvd Properties, LLC, Owner; Caroline Commercial Development,
Inc., Owner / Rappahannock Electric Cooperative, Applicant appears to be generally
consistent with the goals and objectives of the Comprehensive Plan and Future Land Use
Map, and whereas the public necessity, convenience, general welfare and good zoning
practices warrants the approval of this request, I recommend that SPEX-10-2025 be
forwarded to the Board of Supervisors with a recommendation of approval.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
Mr. Rollins motioned and Dr. Horton seconded whereas Special Exception request SPEX11-2025 for Partnership Blvd Properties, LLC, Owner; Caroline Commercial Development,
Inc., Owner / Rappahannock Electric Cooperative, Applicant appears to be generally
consistent with the goals and objectives of the Comprehensive Plan and Future Land Use
Map, and whereas the public necessity, convenience, general welfare and good zoning
practices warrants the approval of this request, I recommend that SPEX-11-2025 be
forwarded to the Board of Supervisors with a recommendation of approval.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.

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February 26, 2026 – Planning Commission Summary Minutes

Mr. Rollins motioned and Mr. Tingler seconded whereas Special Exception request SPEX12-2025 for Partnership Blvd Properties, LLC, Owner; Caroline Commercial Development,
Inc., Owner / Rappahannock Electric Cooperative, Applicant appears to be generally
consistent with the goals and objectives of the Comprehensive Plan and Future Land Use
Map, and whereas the public necessity, convenience, general welfare and good zoning
practices warrants the approval of this request, I recommend that SPEX-12-2025 be
forwarded to the Board of Supervisors with a recommendation of approval.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
Mr. Rollins motioned and Chairman Williams seconded whereas Special Exception
request SPEX-13-2025 for Partnership Blvd Properties, LLC, Owner; Caroline Commercial
Development, Inc., Owner / Rappahannock Electric Cooperative, Applicant appears to
be generally consistent with the goals and objectives of the Comprehensive Plan and
Future Land Use Map, and whereas the public necessity, convenience, general welfare
and good zoning practices warrants the approval of this request, I recommend that SPEX13-2025 be forwarded to the Board of Supervisors with a recommendation of approval.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
ANY AND AL MATTERS
Mr. Robinson provided for the Planning Commission’s consideration and discussion
at the next meeting a request from an Applicant to consider amending the Zoning
Ordinance.
ADJOURNMENT
Chairman Williams motioned and Mr. Schwartz seconded to adjourn to the March
26, 2026 meeting.
Voting yea: Horton, Rollins, Schwartz, Tingler, Williams
Motion carries.
Meeting adjourned at 7:40 p.m.
Respectfully Submitted,
B. Leon Hughes, AICP
Director of Planning & Community Development

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February 26, 2026 – Planning Commission Summary Minutes

Caroline County, Virginia
Department of Planning & Community Development
Department of Building Inspections

B. Leon Hughes, AICP
Director

233 West Broaddus Avenue, Bowling Green, Virginia 22427

MEMORANDUM
TO:

Caroline County Planning Commission

FROM:

Brad Robinson, Zoning Administrator
Planning & Community Development

SUBJECT:

Petition for Thrift Store

DATE:

March 26, 2026

Enclosed for your review is a petition from Axis Land Survey, Inc. regarding the desire of a
property owner to operate a thrift store and add this use to the RP (Rural Preservation)
zoning district. The subject property is located along U.S. Route 1 within the Port Royal
voting district and once contained a commercial use that was preexisting at the time of
adoption of the Zoning Ordinance. The use became nonconforming upon the property
being zoned RP, and as a result of being discontinued for a period longer than two years,
the nonconforming status of the property is no longer applicable.
In accordance with Article XIX of the Caroline County Zoning Ordinance, “If in any district
established under this ordinance, a use is not specifically a listed use, then that particular
use is not permitted within the respective zoning district.” Section 2.1 of Article XIX
contains a provision that a property owner may petition the Board of Supervisors to add
a requested use by submitting an application and narrative to the Zoning Administrator,
who shall then refer the application to the Planning Commission which shall make its
recommendation to the Board of Supervisors.
Typically, a use such as a thrift store operating on commercially zoned property would
be classified as “Retail stores” which are enumerated and permitted by right within the
B-1 (Business) District. “Retail Stores and Shops” as defined in Article II are not permitted
within the RP District, neither as a principal use nor as a special exception use.
The purpose of this item is to ascertain the Board’s level of interest in pursuing such a text
amendment. Should the Board consent to move forward after receiving the Planning
Commission’s recommendation, a formal text amendment would need to be prepared
and advertised for public hearings with the Planning Commission and Board respectively.
The applicant’s petition offers draft regulations for consideration, including a potential
definition of “Thrift Store” for Article II (Definitions); enumeration of “Thrift Store” in Article
IV (Rural Preservation District) as a Special Exception Use with Board of Supervisors’
Approval; and potential development standards for Article XV (Supplemental
Regulations), Section 8 (Development Standards).
Planning / Zoning 804-633-4303 ♦ Building 804-633-9896 ♦ Fax 804-633-1766

www.co.caroline.va.us

Initial discussions with the property owner also explored the “General Store” and “Antique
Shop” use classifications which are currently enumerated in the RP District as special
exception uses. However, the thrift store use proposed by the applicant does not meet
these definitions. Staff notes that “Retail Stores and Shops” as defined in Article II lists
“antique and gift shop” as one of several types of retail stores, which suggests that while
the “Retail stores” use classification in its entirety may not be appropriate or compatible
throughout the RP District, certain types of retail stores – specifically antique shops – may
be appropriate subject to issuance of a special exception and consideration of the
general standards identified in Article XVII, Section 13(D).
In making its recommendation, the Planning Commission should give consideration to
impacts of the requested amendment on the RP District as established countywide aside
from the subject property on its own, and potential impacts that may result from a
rezoning that allows a more intense use in areas where the use was not contemplated.
The applicant has proposed standards that would mitigate potential impacts of the use,
which should be evaluated as to whether they can be applied to other properties
throughout the County or are specific to the property in question.
Att: File

Axis Land Survey
01/15/2026

Caroline County
Article II (2), Article IIII (4), and Article XV (15)
Amendment Application
Caroline County, Virginia

This document outlines a proposal for an amendment to Articles 2, 4, and 15 of the Caroline County
zoning ordinance. The amendment requested is for the inclusion of “Thrift Store” to the articles for
permitted principal uses and structures and/or special exception uses with the Board of Supervisors.
Approval would be to the benefit of Caroline County with several other Thrift Stores already operating
within the county under other uses.
Purpose:
The intended purpose for these amendments is to create a category in the permitted uses/special
exception that allows for the management of a thrift store in the county of Caroline that is unburdened
with the need to conform to requirements that are irregular for operation of a thrift store. Currently,
thrift stores in Caroline County are required to operate mainly within one of three categories:
1. Antique Store
2. General Store
3. Retail Stores and Shops
The Antique Store designation requires that the thrift store stock a percentage of vintage goods made
before a certain year. While these goods may be sufficient to meet some of the requirements, these
goods are most likely not in line with the thrift store’s intended purpose of selling affordable goods as
well as being a provider of charitable goods and services. The antique goods would also take up
considerable shelf and floor space that could otherwise be used toward its true purpose of selling
donated/used goods to impoverished members of the community.
The General Store designation requires that the thrift store host a delicatessen. This requirement
introduces several health and safety burdens that would needlessly complicate the operation of the
thrift store as defined on the following page. Additionally, souvenirs for sale host the same problem as
above since they would take shelf space away from other goods otherwise intended for sale.
The Retail Stores and Shops designation does not take into account the considerable charitable work
that thrift stores engage in with the community. The designation of a retail store may also see the tax
code work against the thrift store designation since one purpose of a thrift store is to use funds to pour
back into the community and/or much of the rest going to operational costs and upkeep. The

designation of a “thrift store” would allow the charitable part of thrift stores to thrive for impoverished/
at-risk members of the community. In addition, the used goods sold at a thrift store are goods that may
have otherwise been sent to a waste facility instead of seeing reuse. Thrift stores help reduce the overall
waste burden experienced by the county and ensures otherwise used materials have the ability to be
used again in the community.
It is this applicant’s belief that the creation of the “Thrift Store” designation for Caroline County articles
2, 4, and 15 would contribute to the continued diversity and development consistent with an expanding
population, and that all existing and future thrift stores would be able to operate with more freedom
and purpose to meet the needs/expectations of the community.
Recommendation:
The current recommendation for a thrift store category to assist in policy making and ease of burden on
the existing county ordinances is as follows:
Article 2:
•

•

Thrift Store:
o A building in which the primary use is the sale of used, often donated, goods to sell
primarily to the economically disenfranchised within the community.
o In addition, the building may be used for charitable work which may be, but isn’t limited
to: charitably given goods, education, training, or monetary assistance.
In addition, it was noticed during research that “Retail Food Establishment” has a typo of “care
out” instead of “carry out”.

Article 4:
•

Section 5 – Special Exception Uses with Board of Supervisor’s Approval
o Thrift Store

Article 15:
•

Section 8 – Development Standards
o Standards for Thrift Stores
1. Building materials shall be in keeping with the rural character and nature of the
surrounding area.
2. Proposed fencing that is visible from public rights of way shall be decorative in
nature.
3. A single paved entrance from a Virginia Department of Transportation maintained
road is required.
4. No outdoor auctions are permitted.
5. There shall be no inoperable vehicles stored outside a fully enclosed building.
6. There shall be no shipping containers, truck bodies, trailers, semi-trailers, mobile
homes, or other similar structures located on the site.

Caroline County, Virginia

Department of Planning & Community Development
Department of Building Inspections
233 West Broaddus Avenue, Bowling Green, Virginia 22427

December 30, 2025
Mr. Garth William Kane
Axis Land Survey, Inc.
5753 Courthouse Road
Spotsylvania, VA 22551
RE:

Special Exception Application SPEX-14-2025

Dear Mr. Kane:
This letter is regarding the above referenced application received by our office on
December 12, 2025. The application (provided in Attachment 1) requests approval to
establish a thrift store on Tax Parcel 39-A-221 currently zoned Rural Preservation (RP).
It is my determination that a “Thrift Store” meets the definition of “Retail Stores and Shops”
as defined in Article II of the Zoning Ordinance. Neither the requested use “Thrift Store,”
nor its current use classification of “Retail Stores and Shops” are identified as a permitted
principal use in Article IV, Section 2, or a special exception use in Article IV, Section 5 of
the Caroline County Zoning Ordinance (Attachment 2). In accordance with Article XIX,
Section 2.1 of the Zoning Ordinance (Attachment 3), “if in any district established under
this ordinance, a use is not specifically a listed use, then that particular use is not
permitted within the respective zoning district”. As a result, the above-referenced
application has been deemed incomplete and unable to move forward for further
review.
Article XIX provides a property owner the opportunity to petition the Board of Supervisors
for a use that is not specifically listed by submitting an application to the administrator
who “shall refer the application to the Planning Commission which shall make its
recommendation to the Board of Supervisors. If the application is approved by the Board
of Supervisors the ordinance shall be amended to add the specific use and its definition
in the respective section(s) of the ordinance.”
Should you desire to petition the Board of Supervisors as outlined above regarding the
requested use, the petition should request to add “Thrift Store” as a defined use and as
an enumerated use in the RP District, or to add “Retail Stores and Shops” as an
enumerated use within the RP District.
You have the right to appeal this decision to the Board of Zoning Appeals (BZA) should
you disagree with the decision. Any person aggrieved by the issuance of this decision
may appeal to the BZA in accordance with Article XVIII, Section 3, of the Caroline County
Zoning Ordinance. Such an appeal must be filed with the Zoning Administrator on
approved application forms within thirty (30) days from the date of this notice. The appeal
Planning / Zoning 804-633-4303 ♦ Building 804-633-9896 ♦ Fax 804-633-1766

www.co.caroline.va.us

Mr. Garth William Kane
December 30, 2025
Page 2

and applications shall be accompanied by a filing fee of $600.00, made payable to the
Caroline County Treasurer for the Administrative Appeal. If such appeal to the BZA is not
filed within 30 days from the date of this decision, the decision contained herein shall
become final and unappealable. Additional information regarding the filing of an
appeal may be obtained by contacting the Planning and Building Department, located
at 233 W Broaddus Avenue, Bowling Green, VA 22427 between the hours of
8:30 a.m. – 5:00 p.m., Monday through Friday, or by contacting Rebecca Bradford,
Zoning Technician, at (804) 633-4303 or [email protected].
If you have any further questions regarding this letter, please contact me or Rebecca
Bradford at (804) 633-4303.
Sincerely,
Brad Robinson
Zoning Administrator
Cc:

Provisions Thrift Store Ministry, Inc., Property Owner
Christopher M. Mackenzie, County Attorney

Att:

Attachment 1
Attachment 2
Attachment 3

Special Exception Application SPEX-14-2025
Article VI, Rural Preservation District (RP)
Article XIX, Amendments

Zoning Ordinance
Caroline County, Virginia
Adopted March 27, 1980
Article I
Purposes and Intent
Section 1 - Title
This ordinance shall be known as the Zoning Ordinance for Caroline County.
Section 2 - Statement of Purpose
For the purpose of promoting the health, safety and general welfare of the public and of further
accomplishing the objectives of Section 15.1-427 of the Code of Virginia, this zoning ordinance is
hereby adopted by the Board of Supervisors of Caroline County. This ordinance has been
designed (1) to provide for adequate light, air, convenience of access, and safety from fire, flood
and other dangers; (2) to reduce or prevent congestion in the public streets; (3) to facilitate the
creation of a convenient, attractive and harmonious community; (4) to expedite the provision of
adequate police and fire protection, disaster evacuation, civil defense, transportation, water,
sewerage, flood protection, schools, parks, forests, playgrounds, recreational facilities, airports,
and other public requirements; (5) to protect against destruction of or encroachment upon
historic areas; (6) to protect against one or more of the following: overcrowding of land, undue
density of population in relation to the community facilities existing or available, obstruction of
light and air, danger and congestion in travel and transportation or loss of life, health or property
from fire, flood, panic or other dangers; and (7) to encourage economic development activities
that provide desirable employment and enlarge the tax base. (8) To provide for the preservation
of agricultural and forestal lands and other lands of significance for the protection of the natural
environment; and (9) to protect approach slopes and other safety areas of licensed airports; and
(10) to promote affordable housing; and (11) to protect the quality of surface and groundwater
resources. (Amended 10/24/90)
Section 3 - Application
This Ordinance shall apply to the unincorporated territory of Caroline County, Virginia. It is the
intent of this ordinance that the extent of its applicability be automatically changed in
accordance with the provisions hereof or provision of State law, which may affect the applicability
of this Ordinance.

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Article 4
Rural Preservation District (RP)
(Adopted 3/28/95-Amended through 06/10/2025)

Section 1 - Statement of Intent
The general intent of this district is to recognize the predominant rural character of Caroline
County, much of which is devoted to open space type uses, such as, but not limited to, crop
farms, non-intensive agricultural operations and forests. This district is established for the specific
purposes of maintaining the rural character and facilitating existing and future crop farms and
non-intensive agricultural operations, the conservation of natural resources and discouraging
suburban sprawl. This district encompasses generally rural areas where urban services such as
water and sewer are not planned.
It is further recognized that some areas of the County are planned for future development but do
not yet have public facilities, utilities or the transportation system in place. In areas as designated,
this district shall serve as a holding zone, until such areas are appropriate for development.
Section 2 - Permitted Principal Uses and Structures
1.

Crop farms, silviculture and non-intensive agricultural operations.

2.

Single Family Dwellings, detached.

3.

Places of Worship.

4.

Lodges and Clubs. Repealed 03/28/2000

5.

Nurseries and Greenhouses (wholesale).

6.

Game Preserves, Wildlife Sanctuaries and Conservation Areas.

7.

Public Facilities (excluding landfills).

8.

Public Utilities (Transmission and Distribution).

9.

Manufactured Houses, subject to the following conditions:
(Amended 9/26/95)
(a) Such units are attached to a permanent foundation;
(b) Such units are skirted with an approved all weather material.

10.

Cemetery, family.

11.

Family Divisions, subject to the following conditions:
(Amended 11/25/97)
(a) The minimum lot size shall be two (2) acres;
(b) The lot area and other dimensional requirements shall be the same as that for a
two (2) acre lot in the RR-2 Zoning District;
(c) The parent tract shall maintain the minimum lot size required in the RP zoning
district or ½ the size of the original lot size, whichever is less;

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(d) Overall sketch plan showing future proposed family divisions shall be provided;
(e) Common driveway entrances shall be utilized in accordance with Section 5.20
of the Subdivision Ordinance.
12.

Private Schools (Adopted 06/10/25)

Section 3 - Permitted Accessory Uses and Structures
Uses and structures which are customarily accessory and clearly incidental and subordinate to
permitted principal uses and structures, including:
1.

Wayside stands for the display and sale of products produced on the premises
(excluding processed products).

2.

Garages and domestic storage buildings.

3.

Home Occupations, minor.

4.

Family Apartments, subject to the following conditions:
(a) Such a unit shall not be occupied by more than three (3) persons, at least one
of which must be the natural or adopted parent, grandparent, child, grandchild,
brother, or sister of the owner and occupant of the single family residence on
the same lot;
(b) Such a unit shall contain no more than 1,000 square feet of living space;
(c) No dwelling units other than the principal structure (a single-family dwelling) and
one such family apartment shall be located on a lot;
(d) When such a unit is no longer needed by a member of the immediate owner’s
family and the three (3) year period following the date it passes final inspection
by the County Building Official has expired, the unit shall be considered a
nonconforming use and as such can be rented to anyone.

5.

Parish House or Rectory (accessory to places of worship).

6.

Cemetery (church).

7.

Temporary Uses (Amended 8/22/2000)
(a) A Manufactured House for Purposes of Housing Farm Labor subject to the
following conditions:
(1) The applicant shall be the owner of the farm on which the manufactured
home is to be located;
(2) Not more than one farm tenant structure for each fifty acres of land devoted
to agricultural uses shall be permitted;
(3) The manufactured home must be skirted so that the undercarriage is not
visible;
(4) The sewage disposal and water supply systems for the manufactured home
be approved by the Caroline County Health Department;
(5) At least one occupant of the manufactured home shall be employed fulltime on the subject farm;

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(6) A temporary zoning permit may be issued for a period not to exceed five
years. At least thirty (30) days prior to the expiration of the permit, permittee
shall apply to the Zoning Administrator for a renewal of the temporary zoning
permit. Upon the determination by the Zoning Administrator that all the
conditions under which the permit was issued have continued to be
complied with, and that there are no changed conditions, the Administrator
shall renew said permit for an additional five year period. If, however, the
permittee has not complied with permit conditions, or conditions have
changed, the Zoning Administrator shall revoke the temporary zoning permit.
(7) There shall be no tenant house available on the farm and no dwelling on the
farm rented to a family without at least one member working full-time on the
farm. Nothing in this shall be construed to permit the owner of the farm to
occupy the home.
(8) For the purpose of this Section, the term “farm” shall be defined as land used
for the production of crops; the raising of pasturing of livestock; the raising of
hay for livestock, either for income producing equine pursuits or the
production of cattle to produce beef, milk and other dairy products; for the
raising of poultry and sale of chickens and eggs; or for the growing of fruit.
However, no such use shall qualify as a “farm” use unless the person
conducting same shall demonstrate annual gross sales or anticipated annual
gross sales of $10,000 or demonstrate sufficient need to justify one full-time
farm employee;
(9) The temporary zoning permit shall be obtained prior to locating a
manufactured home in accordance with this Section.
(b)

A Single-Section Manufactured House for a Medical Hardship subject to
conditions:
(1) Only one such manufactured home shall be located on the parcel;
(2) The manufactured home shall be accessory to a single family residential
dwelling;
(3) The manufactured home shall house a member of the immediate family;
(4) Upon elimination or correction of the hardship, the manufactured home
shall be removed;
(5) Zoning permit shall be valid for five (5) years. Prior to expiration, application
may be made for a new Zoning Permit;
(6) Failure to comply with these conditions shall void the permit.

(c) Turkey Shoots or Other Temporary or Seasonal Events. Repealed 08/18/15
(1) The duration of the event shall not exceed five (5) consecutive days.
(2) The event or events shall not exceed fourteen (14) days combined in any
calendar year.
(3) Not more than four (4) events are permitted in any calendar year.
(4) The proposed event shall not result in any noise, glare, dust or other noxious
elements that adversely affect the use of neighboring properties.
(C) Yard Sales (Accessory to residential uses) (Adopted 08/18/15)
(1)
(2)

The duration of the event shall not exceed three (3) consecutive days.
Not more than three (3) events are permitted in any calendar year

(d) Seasonal Events (Adopted 08/18/15)

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(1) The duration of a single event shall not exceed three (3) consecutive days,
with a cumulative total not to exceed twenty four (24) days in any
calendar year.
(2) The proposed event shall not result in any noise, glare, dust, or other
noxious elements that adversely affect the use of neighboring properties.
8.

Family Day Homes (Adopted 07/24/2001)
Six (6) to twelve (12) children subject to issuance of an Administrative Permit in
accordance with Chapter 15.2-2292 of the Code of Virginia.

No accessory use or structure shall be permitted until the principal use or structure has been
established.
Section 5 - Special Exception Uses with Board of Supervisor’s Approval
1.

Animal Hospitals and Veterinarian Clinics.

2.

Kennels, Commercial.

3.

Sand and Gravel Extraction and Sales. (Amended 8/24/04)

4.

Airports.

5.

Campgrounds/Camping Areas.

6.

Sanitary Landfills (governmental).

7.

Equestrian facilities (spectator)

8.

Training Centers for Handicapped Persons.

9.

Sawmills.

10.

Public Utilities - generation.

11.

Adult Homes and Nursing Homes.

12.

Child Care Facilities.

13.

Bed and Breakfast.

14.

Home Occupations, Major.

15.

Professional Office subject to the following conditions:
(a) The minimum parcel size shall be fifty (50) acres;
(b) A minimum of eighty (80) percent of the property shall remain in open space.
(c) The facade of the structure shall resemble a single family dwelling or agricultural
building. Architectural drawings shall be submitted with the site plan.
(d) Parking shall be located to the rear of the structure.
(e) No subdivision of the property shall be permitted.
(f) A site plan shall be submitted and approved in accordance with Article XV,
Section 14 of the Zoning Ordinance.

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16.

(g) A landscaping plan shall be submitted and approved with the site plan.
(h) Other conditions as provided for in Article XVII, Section 11 of the Zoning
Ordinance may be required.
Convents, Monasteries and Religious Retreats.

17.

Housing for Seasonal Farm Labor, subject to the following conditions:
(a) Minimum parcel size of fifty (50) acres;
(b) Housing shall be only for the employment needs for farms in Caroline County;
(c) Housing units shall be occupied from April 15 to November 15 only. No residential
occupancy shall be permitted from November 15 to April 15;
(d) No more than one such housing unit shall be permitted per parcel;
(e) Housing units shall be designed and constructed for such housing needs; for farm
employees only and single sex occupancy;
(f) Farm housing must meet Virginia Department of Health standards for well and
septic;
(g) Any other conditions that may be imposed by the County pursuant to Article
XVII, Section 11 of the Zoning Ordinance.

18.

Golf Clubs and Golf Courses.

19.

Rural Commercial Recreational Uses subject to the following conditions:
(Amended 7/28/98)
(a) The minimum acreage for commercial recreational structures and uses shall be
two (2) acres.
(b) On-site supervision of events shall be maintained at all times.
(c) The proposed sites shall have direct access to a road designated as a Class 1
hard surface secondary road.
(d) The proposed site shall be of a size and shape appropriate for the proposed use
and be situated so as to provide adequate buffering to protect adjacent
development from potentially adverse effects.
(e) A site plan shall be submitted in accordance with the requirements of Article XV,
Section 14.
(f) All rural commercial recreational structures and uses shall not produce sound
levels which exceed sixty (60) decibels during hours of operation as measured at
the nearest property line.
(g) The use shall also be subject to the standards and conditions as may be
applicable pursuant to Article XVII, Sections 10 and 11.

20.

Radio/TV Studio, Office and Broadcasting Facilities. (Adopted 4/14/98)

21.

Communication Facilities (Repealed and Replaced 5/25/04)

22.

Clubs and Lodges (Adopted 03/28/2000)

23.

Special Events Facility – a facility where private weddings and parties, and other
similar events which shall not be open to the public are held with invited guests not
to exceed 300.
(Adopted 08/26/03)

24.

Contractor’s Office, Equipment, Storage, and Sales Facilities. (Adopted 05/25/04)

25.

Family Divisions where the property does not meet the provisions of Article 4, Section
2.11. (Adopted 10/26/04)

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Requirements for Approving Non-Conforming Family Subdivision
The Board of Supervisors may approve a special exception for a family
subdivision which does not meet the lot size requirement as set forth in Section
2, subsection 11 of this Article provided that the Board of Supervisors determines
that the family subdivision is consistent with the intent of the County
Comprehensive Plan and results in the promotion and preservation of the rural
character of the County. The Board may approve the special exception
provided that the proposal promotes the health, safety, and general welfare of
the public and meet the following criteria:
1.

The purpose of the family division is solely to provide for the housing needs
of immediate family members.

2.

The granting of the special exception shall allow the family division to
comply with the land use designation of the comprehensive plan.

3.

A concept plan shall be submitted and approved as a condition of the
special exception. The concept plan shall identify all proposed and
anticipated future family divisions. Actual transfer may not occur until some
future date.

4.

All proposed lots shall be required to have an approved drainfield location
shown on the concept plan.

5.

The minimum size of all lots shall not be less than one (1) acre.

6.

All lots shall be accessed by a minimum of a fifty (50) ft. access easement
with a minimum of travel service width of twenty (20) ft.

7.

In granting the special exception, the Board of Supervisors may impose
conditions regarding the location, character and other features of the
proposed family division as it may deem necessary to the public interest;
and it may require a guarantee or bond to remain in effect until
compliance with such conditions has occurred.

8.

This amendment shall not apply to pre-existing recorded family
subdivisions.

26.

Antique Shop (Adopted 02/08/05)

27.

Nursery and/or Greenhouse (Commercial) (Adopted 3/21/06)

28.

Therapeutic Health Facility subject to the following conditions:
(Adopted 1/09/07)
(a) The minimum parcel size shall be fifty (50) acres;
(b) A minimum of fifty (50) percent of the property shall remain in open space,
(c) Structures shall meet the setbacks for the Rural Preservation District; set forth in
Article XII, Section 1 of the ordinance;
(d) The exterior of any new structures shall resemble a single family dwelling or
agricultural building. Elevations shall be submitted with the site plan for review
and approval;

4-6

(e) Appropriately trained and licensed medical personnel shall be on-site and/or
on-call at all times;
(f) Subdivision of the property which is subject to the special use permit is
prohibited;
(g) A site plan shall be submitted and approved in accordance with Article XV,
Section 14 of the Zoning Ordinance;
(h) A landscaping plan shall be submitted and approved with the site plan;
(i) Other conditions as provided for in Article XVII, Section 11 of the Zoning
Ordinance may be required.
29.

Artist Studio in which the artist/operator does not reside on the property.
(Adopted 6/12/07)

30.

Golf Course, Major (Adopted 09/09/08)

31.

Private Roads in rural subdivisions subject to the standards in Article 15,
Section 8, Development Standards, paragraph L - Standards for private road
subdivisions. (Adopted 8/11/09)

32.

Community Administrative Office (Adoptd 03/26/13)

33.

Boarding School (Adopted 04/09/13)

34.

Community Use (Adopted 03/26/13)

35.

Educational Use, Outdoor (Adopted 06/10/25)

36.

Rural Resort (Adopted 09/23/14)

37.

General Store (Adopted 09/23/14)

38.

Museum (Adopted 09/23/14)

39.

Property Manager’s Residence (Adopted 3/25/14)

40.

Minor Solar Energy Project (Adopted 05/25/21) Repealed 11/10/22

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DEFINITIONS
ANTIQUE SHOP

A business that buys and sells works of art, piece
of furniture, decorative object, which were
manufactured in an earlier period and is
presented for the display and sale to the public.
All display(s) shall be in a fully enclosed structure.

GENERAL STORE

A retail establishment that offers for sale grocery
items, deli counter, fountain drinks, souvenirs and
miscellaneous items. (Repealed & Replaced
09/23/2014)

RETAIL STORES AND SHOPS

A building and the associated land area used
primarily for sale of merchandise at retail for
consumption by the immediate purchaser or for
the rendering of personal services, including, but
not limited to, the following: barber shop, beauty
parlor, drug store, newsstand, food store, candy
shop, milk dispensary, dry goods and notions store,
antique and gift shop, hardware store, household
appliance store, furniture store, florist, optician,
music and radio store, shoe store, tailor shop; but
specifically excluding building material sales; and
storage yards.

Caroline County, Virginia
Department of Planning & Community Development
Department of Building Inspections

B. Leon Hughes, AICP
Director

233 West Broaddus Avenue, Bowling Green, Virginia 22427

MEMORANDUM
TO:

Caroline County Planning Commission

FROM:

Brad Robinson, Zoning Administrator
Planning & Community Development

SUBJECT:

Petition for Manufactured Home Sales

DATE:

March 26, 2026

Enclosed for your review is a petition from Patriot Homes regarding a desire to add a use
to the B-1 (Business) District that would permit for the retail display and sales of new
manufactured and modular homes. The subject property is located along U.S. Route 1
within the Mattaponi voting district. Under current zoning regulations, there is not a use
classification that permits the requested business. As defined in Article II, an office use
shall not involve storage, sale or delivery of any materials, goods or products, all of which
the requested use will involve.
In accordance with Article XIX of the Caroline County Zoning Ordinance, “If in any district
established under this ordinance, a use is not specifically a listed use, then that particular
use is not permitted within the respective zoning district.” Section 2.1 of Article XIX
contains a provision that a property owner may petition the Board of Supervisors to add
a requested use by submitting an application and narrative to the Zoning Administrator,
who shall then refer the application to the Planning Commission which shall make its
recommendation to the Board of Supervisors.
The purpose of this item is to ascertain the Board’s level of interest in pursuing such a text
amendment. Should the Board consent to move forward after receiving the Planning
Commission’s recommendation, a formal text amendment would need to be prepared
and advertised for public hearings with the Planning Commission and Board respectively.
The petition offers a proposal to enumerate “New Manufactured and Modular Homes
Display, Sales and Service (with small parts storage under roof)” in Article IX (Business
District) as a use permitted by right in Section 2. Staff concurs with enumerating the
requested use by right if the use is subject to development standards in Article XV
(Supplemental Regulations) which would need to be developed as part of a text
amendment. Staff envisions and recommends the requested use being developed with
display arranged in a neighborhood style with pedestrian accommodations for
customers.

Planning / Zoning 804-633-4303 ♦ Building 804-633-9896 ♦ Fax 804-633-1766

www.co.caroline.va.us

In making its recommendation, the Planning Commission should give consideration to
potential impacts of the requested amendment on the B-1 District which is generally
located within primary growth areas and along roadways designated with the Highway
Corridor Overlay District (HCOD), the standards of which promote maintaining function
and safety of these roadways as well as their aesthetic appearance. Concerns regarding
potential impacts could be addressed through development standards. The Planning
Commission may also want to consider if the requested amendment should be narrowly
defined to manufactured homes; if a broader use classification could be developed that
would allow for other similar type uses; and if the requested use should be limited to only
the B-1 District.
Att: File

Zoning Ordinance
Caroline County, Virginia
Adopted March 27, 1980
Article I
Purposes and Intent
Section 1 - Title
This ordinance shall be known as the Zoning Ordinance for Caroline County.
Section 2 - Statement of Purpose
For the purpose of promoting the health, safety and general welfare of the public and of further
accomplishing the objectives of Section 15.1-427 of the Code of Virginia, this zoning ordinance is hereby
adopted by the Board of Supervisors of Caroline County. This ordinance has been designed (1) to provide
for adequate light, air, convenience of access, and safety from fire, flood and other dangers; (2) to reduce
or prevent congestion in the public streets; (3) to facilitate the creation of a convenient, attractive and
harmonious community; (4) to expedite the provision of adequate police and fire protection, disaster
evacuation, civil defense, transportation, water, sewerage, flood protection, schools, parks, forests,
playgrounds, recreational facilities, airports, and other public requirements; (5) to protect against
destruction of or encroachment upon historic areas; (6) to protect against one or more of the following:
overcrowding of land, undue density of population in relation to the community facilities existing or
available, obstruction of light and air, danger and congestion in travel and transportation or loss of life,
health or property from fire, flood, panic or other dangers; and (7) to encourage economic development
activities that provide desirable employment and enlarge the tax base. (8) To provide for the preservation
of agricultural and forestal lands and other lands of significance for the protection of the natural
environment; and (9) to protect approach slopes and other safety areas of licensed airports; and (10) to
promote affordable housing; and (11) to protect the quality of surface and groundwater resources.
(Amended 10/24/90)
Section 3 - Application
This Ordinance shall apply to the unincorporated territory of Caroline County, Virginia. It is the intent of this
ordinance that the extent of its applicability be automatically changed in accordance with the provisions
hereof or provision of State law, which may affect the applicability of this Ordinance.

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Article IX
Business District
(As amended through June 10, 2025)
Section 1 - Statement of Intent
The general intent of this district is to provide for and promote the development of a variety of
business, commercial, and service activities. Such districts are intended for location at strategic
sites in relation to population centers and transportation networks.
Section 2 - Uses Permitted by Right
1.

Banks and savings and loan institutions.

2.

Restaurants.

3.

Drug stores.

4.

Barber and beauty shops.

5.

Funeral homes.

6.

Clothing stores and tailor shops.

7.

Dry cleaners and laundries.

8.

Bakeries.

9.

Libraries.

10.

Medical offices and clinics.

11.

Florist shops.

12.

Retail stores.

13.

Retail food stores.

14.

Churches.

15.

Antique shops and gift shops.

16.

Machinery sales and services.

17.

Plumbing and electrical supply (with storage under cover).

18.

Lumber and building supply (with storage under cover).

19.

New Car Sales, bicycle, and home appliance sales and services. (Amended 2/25/03)

20.

Service stations (with major repair under cover).

21.

Hotels and motels.

22.

Office buildings.

23.

Nurseries and greenhouses.

24.

Printing, publishing and engraving services.

25.

Shoe repair.

26.

Clubs and lodges.

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27.

Public utilities, distribution.

28.

Seasonal Events (Adopted 08/18/15)
(a) The duration of a single event shall not exceed three (3) consecutive days, with a
cumulative total not to exceed twenty four (24) days in any calendar year.
(b) The proposed event shall not result in any noise, glare, dust, or other noxious elements
that adversely affect the use of neighboring properties.

29.

Exercise Studio (Adopted 07/12/16)

30.

Brewery, Limited (Adopted 09/10/19)

31.

Distillery, Limited (Adopted 09/10/19)

32.

Commercial Kennel, Indoor (Adopted 01/26/21)

33.

Vehicle Wash (Adopted 11/09/2021) Repealed 09/10/24

34.

Electric Vehicle Charging Station (Adopted 06/13/23)

35.

Electric Vehicle Charging Center (Adopted 06/13/23)

36.

Educational Use, Indoor (Adopted 06/10/25)

Section 3 - Uses Permitted by Special Exception
1.

Hospitals.

2.

Theaters.

3.

Cabinet, furniture and upholstery shops.

4.

Training center for handicapped persons.

5.

Public billiard parlors and pool rooms, bowling alleys, dance halls, swimming pools, and
other forms of public amusement.

6.

Processing, light warehousing, wholesaling, assembling and distribution establishments.
(repealed and replaced 06/11/2013)

7.

Residences as accessory uses.

8.

Public utilities.

9.

Child care facility. (Amended 5/10/85)

10.

Bed and Breakfast. (Adopted 3/26/87)

11.

Contractor’s Equipment, Storage and Sales Facilities. (Repealed & Replaced 05/25/04)

12.

Truck stop, truck service and repair facilities subject to the following conditions: (Adopted
7/28/92)
a. All maintenance, repair, and mechanical work shall be performed in enclosed
buildings.

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b. All facilities shall be designed and located so that the operation thereof does not
adversely affect adjacent commercial or residential areas, particularly with respect
to noise.
c. No parking or outside storage shall be permitted in any required front yard.
d. All areas for outdoor storage and all equipment, machinery and facilities not located
within an enclosed building shall be effectively screened.
e. All exterior lighting sources shall be shielded and directed downward so as to not be
visible to adjacent properties.
f. Adjacent residential uses shall have a minimum of a 50’ buffer to any truck service
and repair facility or truck stop.
g. Any other conditions as provided for in Article XVII, Section 11 of the Zoning
Ordinance as may be required.
13.

Convents, Monasteries and Religious Retreats subject to the following conditions: (Adopted
8/24/93)
a.
b.
c.
d.

14.

The property must have been zoned B-1, Business, prior to March 27, 1980.
The minimum lot size shall be five acres of land.
Length of stay for religious retreats shall not exceed 30 days.
Site plan approval shall be required.

Communication Facilities. (Repealed & Replaced 05/25/04)

15. Sexually Oriented Businesses subject to the following criteria: (Adopted 2/27/01)
a. Permit required from sheriff
Every person either operating or desiring to operate a Sexually Oriented Business must
comply with the permit requirements as set forth in the Emergency Ordinance to
Provide for the Regulation and Permitting of Sexually Oriented Business, adopted
January 16, 2001 (proposed Amendment to Chapter 77 of the Caroline County Code
(Property Maintenance) adding Article VIII (Providing for the Regulation of and
Permitting Sexually Oriented Businesses).
b. Location of Sexually Oriented Businesses.
1. Set-back Requirements.
No Sexually Oriented Business may be operated within 1,000 feet of the property
line of the following:
(a) A church, synagogue, mosque, temple or building which is used primarily for
religious worship and related religious activities.
(b) A public or private educational facility including but not limited to child day
care facilities, nursery schools, preschools, kindergartens, elementary schools,
private schools, intermediate schools, junior high schools, middle schools, high
schools, vocational schools, secondary schools, continuation schools, special
education schools, junior colleges, and universities; school includes the school
grounds, but does not include facilities used primarily for another purpose and
only incidentally as a school;
(c) A boundary of a residential district as defined in the Caroline County Zoning
Ordinance;

9-3

(d) Any public lands, parks or recreational areas which have been designated for
park or recreational activities including but not limited to a park, playground,
nature trails, swimming pool, reservoir, athletic field, basketball or tennis courts,
pedestrian/bicycle paths, wilderness areas, or military installations,
government office space, game preserves, public landings or other similar
public land within the County.
(e) An entertainment business which is oriented primarily towards children or
family entertainment; or
(f) A licensed premises, licensed pursuant to the alcoholic beverage control
regulations of the State;
(g) Any motel, hotel, or travel lodge; or
(h) Any truck stop or truck rest area.
(i) Any other sexually oriented businesses.
c. Hours of Operation
No sexually oriented business, except for an adult motel, may remain open at any time
between the hours of one o'clock (1:00) A.M. and eight o'clock (8:00) A.M. on
weekdays and Saturdays, and one o'clock (1:00) A.M. and noon (12:00) P.M. on
Sundays.
d. Violations and Penalties.
A person who operates or causes to be operated a Sexually Oriented Business in
violation of this ordinance is subject to a suit for injunction as well as prosecution for
criminal violations. Such violations shall be punishable by a fine of $2,500.00 or
imprisonment for a term not to exceed 12 months or both. Each day a sexually
oriented business so operates shall constitute a separate offense or violation.
e. Severability.
If any section, subsection, or clause of this ordinance shall be deemed to be
unconstitutional or otherwise invalid, the validity of the remaining sections,
subsections, and clauses shall not be affected.
16. Used Car Sales (except when accessory to new car sales).
(Adopted 2/25/03)
17. Tow Service Operation (Adopted 4/11/06)
18. Private roads in a commercial development subject to the standards in Article 15, Section
8, Development Standards, Paragraph L – Standards for Private Roads.
19. Crematory subject to the standards in Article 15, Section 8, Paragraph M – Standards for
Crematory. (Adopted 11/24/09)
20. Motor Vehicle Repair/Service Facility – Minor (Adopted 03/13/18)
21. Data Center – subject to the standards contained in Article XI, Division 7, Planned
Innovation, Research, and Technology Park (Adopted 11/16/23)
22. Commercial Kennel, Outdoor (Adopted 01/26/21)
23. Vehicle Wash (Adopted 09/10/24)

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