On the agenda: Charles City County meeting — Data Center (Sep 24)

CHARLES CITY COUNTY

PLANNING COMMISSION
Regular Meeting Agenda
Thursday, September 24, 2026 @ 6:30 p.m.
in the Government Adminstration Building at
10900 Courthouse Road, Charles City, Virginia,
23030
I.

CALL TO ORDER

II.

DETERMINATION OF A QUORUM

III.

PUBLIC HEARINGS (NONE)

IV.

APPROVAL OF MINUTES
A. June 11, 2026
B. June 25, 2026
C. July 23, 2026

V.

UNFINISHED BUSINESS
A. Rules of Order
B. Legislative Updates effective July 1,
2026
1.Data Centers
2.Solar Power
Facilities
3.Battery Storage
C.2045 Comprehensive Plan Update

VI.

NEW BUSINESS

VII.

PLANNING DIRECTOR STAFF
REPORT

VIII.

PUBLIC COMMENTS

IX.

ADJOURMENT

CHARLES CITY COUNTY

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PLANNING COMMISSION
June 11, 2026 Draft Regular Meeting Minutes

CALL TO ORDER:
The Charles City County Planning Commission Meeting was called to order on June 11, 2026, at 6:30
p.m. at the Charles City County Government Administrative Building.
PRESENT:

Edward L. Baber, Jr., Chairman
Clyde L. Miles
James Walton
Brenda Jones-Cotman

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ABSENT:

Ryan Patterson
LaToya Johnson-Davis
Shelley Sheehe

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OTHERS:

Harold Timmons, TEP
Sheri L. Adams, Interim Community Development Director

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PUBLIC HEARINGS: SUP-01-2026 - Tower Engineering Professionals, on behalf of Dominion
Energy, have applied for a special use permit for the construction of a new communication tower that will
replace two (2) existing guyed-wire towers on the property located at 11933 Munford Road, also known
as tax map parcel number 27-67. The proposal is to remove the two (2) existing structures and replace
them with a single, self-supporting, steel lattice structure that will be four hundred and twenty (420) feet
in height. The property is located along the north line of Munford Road, approximately fourteen thousand
(1400) feet west of the intersection of Munford Road (SR 660) and Courthouse Road.
The Chairman reviewed the guidelines for Public Hearings.
Ms. Adams presented the special use permit application to the Planning Commission.
Ms. Adams recommended approval of application SUP-01-2026.

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Mr. Harold Timmons, of Tower Engineering Professionals, thanked Ms. Adams for her presentation and
made himself available for any additional questions.

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The Chairman asked the commissioners if there were any questions about the proposal.

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All questions were asked and answered.

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The Chairman opened the public hearing.

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The Chairman closed the public hearing.

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The Planning Commission considered a recommendation to the Board of Supervisors.
On a motion by Brenda Jones-Cotman, and seconded by James Walton, and a vote of 4:0, the Planning
Commission approved application SUP-01-2026 with the noted conditions and recommended approval by
the BOS of application SUP-01-2026 with the conditions noted.

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APPROVAL OF PREVIOUS MEETING MINUTES:
On a motion by Clyde Miles, and seconded by Brenda Jones-Cotman, and a vote of 4:0, the regular
meeting minutes from May 14, 2026, were approved as corrected/presented.
UNFINISHED BUSINESS:
The Planning Commissioners discussed the unfinished business of the Comprehensive Plan review.
NEW BUSINESS:
No new business was considered.

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PLANNING DIRECTOR/STAFF UPDATES:
Ms. Adams gave an update on the status of current applications under review by staff. She reported no
other public hearing applications have been received for the Planning Commission to consider.

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The meeting was adjourned at 8:30 PM.

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PUBLIC COMMENTS:
Public comments were made by the following individuals:Jared Kline, Lloyd Carter, Traci Floyd, and
Brandi Marano expressing concerns about datacenters being by right use.
ADJOURNMENT:

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CHARLES CITY COUNTY

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PLANNING COMMISSION
June 25, 2026 Draft Work Session Meeting Minutes

CALL TO ORDER:
The Charles City County Planning Commission Meeting was called to order on June 25, 2026, at 6:30
p.m. at the Charles City County Government Administrative Building.
PRESENT:

Edward L. Baber, Jr., Chairman
Ryan Patterson
Clyde L. Miles
Brenda Jones-Cotman
Shelley Sheehe

ABSENT:

LaToya Johnson-Davis
James Walton

OTHERS:

Sheri L. Adams, Interim Community Development Director

WORK SESSION/UNFINISHED BUSINESS: The Chairman opened the work session discussion on
the Comprehensive Plan and a proposed letter to the Board of Supervisors. The Commissioners agreed to
review a draft letter and asked staff to follow up on the editing and distribution of their letter to the Board
of Supervisors.
APPROVAL OF PREVIOUS MEETING MINUTES:
No meeting minutes were presented by staff for approval.
NEW BUSINESS:
No new business was considered.
PLANNING DIRECTOR/STAFF UPDATES:
Ms. Adams gave an update on the status of current applications under review by staff. She reported no
other public hearing applications have been received for the Planning Commission to consider.
PUBLIC COMMENTS:
Public comments were made by the following individuals: Traci Floyd, Pat Davis, Brandi Marano, and
Lloyd Carter expressing concerns about data centers being by-right use.

ADJOURNMENT:
The meeting was adjourned at 8: I 3 PM.

CHARLES CITY COUNTY

PLANNING COMMISSION
July 23, 2026 Draft Work Session Minutes

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CALL TO ORDER:
The Charles City County Planning Commission Meeting was called to order on July 23, at 6:30 p.m. at
the Charles City County Government Administrative Building.

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APPROVAL OF PREVIOUS MEETING MINUTES:
On a motion by Shelley Sheehe, seconded by James Walton, and a vote of 4:0, the meeting minutes from
October 9, 2025, were approved as corrected.

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PRESENT:

Edward L. Baber, Jr., Chairman
Ryan Patterson
Clyde L. Miles
James Walton
Shelley Sheehe

ABSENT:

Benda Jones-Cotman
LaToya Johnson-Davis

OTHERS:

Sheri L. Adams, Interim Community Development Director
John M. Dugan, Incoming Community Development Director

On a motion by Ryan Patterson, seconded by James Walton, and a vote of 4:0, the meeting minutes from
December 11, 2025, were approved as presented.

WORK SESSION: The Planning Commissioners recognized Ms. LaToya Johnson-Davis for her editing
of the Planning Commission letter to the Board of Supervisors. They also discussed the need for a
legislative update from the County Attorney on Solar Farms and Battery Energy Storage systems in an
effort to update the ordinances accordingly.
UNFINISHED BUSINESS:
Ms. Adams stated a previous BZA applicant, Mr. Nathaniel Christian, still had not presented an updated
survey of his property.

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NEW BUSINESS:
No new business was considered.

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PLANNING DIRECTOR/STAFF UPDATES:
Ms. Adams introduced Mr. John M. Dugan, the soon to be Director of Community Development, who
would official start August 17 th • Mr. Dugan gave a brief introduction of his experience and stated he
looked forward to assisting the Planning Commissioners.

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Ms. Adams gave an update that the Board of Supervisors had approved SUP-01-2026 and gave updates
on recent BZA and Wetland applications as well as a status report on PointOne and CS, LLC.

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She had no other public hearing applications for the Planning Commission to consider.

PUBLIC COMMENTS:

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Public comments were made by the following individuals: Pat Davis, Brandi Marano, and Traci Floyd
about repeated concerns.

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ADJOURNMENT:

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The meeting was adjourned at 8:29 PM.

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CHARLES CITY
COUNTY, VIRGINIA

PLANNING COMMISSION
RULES OF ORDER

Amended and R,mamedRc,1a1cd
;,,-litr�h 14. 20��p11:111hc1 I. :!02_(!

--· i Formatted: Centered, Font Alignment Auto

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ARTICLE 1 - AUTHORIZATION
1-1

This Planning Commission is established in conformance with a resolution adopted by the
Board of Supervisors of Charles City County, Virginia on June 23, 1952; and in accordance
with the provisions of§ 15.2-2210, Code of Virginia ( 1950), as amended.

1-2

The official title of this body shall be the "Charles City County Planning Commission",
hereinafter referred to as the "Commission". Further, the Commission shall be governed by
these Rules of Order (the ..Rules") and all applicable federal, state, and local laws, states,
and ordinances, as amended, including the following:
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Title 15.2, Chapter 22, Article 2 - ..Local Planning Commission" (Va. Code§§ 15.222 IO et seq.);
The Virginia Freedom of Information Act (Va. Code§§ 2.2-3700 et seq.);
The Virginia Conflict of Interests Act (Va. Code§§ 2.2-3100 et seq.);
The Charles City County Zoning Ordinance; and
The Charles City County Code.

ARTICLE 2 - MEMBERS
2-1

The Commission shall consist of seven members, appointed by the Board; who shall be
residents of Charles City County, qualified by knowledge and experience to make decisions
on questions of community growth and development; and, at least one-half of the members
shall be owners of real property in Charles City County in accordance with Va. Code§
15.2-2212.

2-2

One Commissioner may be a member of the Board of Supervisors, and another
Commissioner may be a member of the Board of Zoning Appeals.

2-3

The tenn of the member from the Board of Supervisors shall be coextensive with the term
of office to which he or she has been elected or appointed, unless the Board of Supervisors,
at the first regular meeting each year, appoints another to serve as their representative. The
remaining members of the Commission shall serve for terms of four years.

2-4

Any vacancy in membership shall be filled by appointment of the Board of Supervisors
and shall be for an unexpired term only. A member whose tenn expires shall continue to
serve until reappointed or a successor is appointed and qualifies. When a member
proposes to resign, if reasonably feasible, they shall give advance written notice to the
Chairperson, or make the date of resignation effective in such a manner as to allow time
for a timely appointment of a replacement.

2-5

Any appointed members may be removed by the Board of Supervisors for neglect of duty,
or malfeasance in office. Absence from three consecutive meetings without justification
constitutes neglect of duty or absence from any four m�etings within a twelve-month
period. Justifiable absences are those due to an illness (self or family member), personal
emergency, or job restrictions.

2-6

The Board may provide for compensation to Commission members for their services,
reimbursement for actual expenses incurred, or both.

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2-7

All new members appointed to the Planning Commission should be given the
opportunity to attend a Commission-approved training program. such as the Land Use
Education Program (LUEP) Certified Planning Commissioner Program, within one (I)
year of appointment. All Planning Commission members should also attend seminars
and annual refresher courses. Cosrs associmc<l wirh attendanc-c will be r�imhurscd bv
the Countv upon i.:0111ple1ion.

ARTICLE 3 - OFFICERS AND DUTIES
3-1

Officers of the Commission shall consist of a ��hairperson, �..... ice-chairperson, and secretary.
The [1,hairperson and y,,_ice-chairperson are elected from the Commission's membership,
whose terms of office shall be for one year. The secretary may be appointed by the Staff of the
Community Development Department and need not be a member of the Commission.

3-2

Nomination of officers shall be made from the Ooor at the Planning Commission's
organizational meeting each year. Election of officers shall follow immediately. A candidate
receiving a majority vote of those voting shall be declared elected. Officers shall take office in
January and serve for a one-year term, or until a successor shall take office.

3-3

Vacancies in office shall be filled immediately by regular election procedures.
a) Acting Chairperson: In the unusual circumstance that neither the Chair nor Vice-Chair are
present for a meeting, the most senior Planning Commission Member present shall preside
over the election of an Acting Chairperson to serve for that specific meeting.

3-4

The Chairperson shall:
Preside over all meetings and public hearings.
Appoint commiuees.
Rule on procedural questions.
Report any official communications to the Commission.
Be authorized to sign all documents as required by the Commission.
Carry out other duties as assigned by the Commission: and,
To monitor auendance and report neglect of duty or malfeasance to the Board of
Supervisors.

3-5

The Vice Chairp erson shall act in the absence or inability of the Chairperson to act. with the
full powers of the Chairp erson.

3-6

The Secretary shall:
Record and prepare the Commission minutes.
Notify members of all meetings and hearings.
Maintain a record of all business transacted by the Commission.
Maintain all official records and reports of the Commission.
Prepare and be responsible for the preparation of all official Commission communications.
Maintain member's auendance record.
Prepare meeting agenda with copies of supporting documents for distribution: and.
Prepare and be responsible for the publishing of advertisements relating to public hearings.

ARTICLE 4 - DUTIES OF PLANNING COMMISSION
4-1

The Planning Commission shall:

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Serve as an advisory body to the Board of Supervisors to promote the orderly
development of the County and its environs and to accomplish the objectives set forth in
Virginia Code§15.22220, as amended.
Prepare and recommend a comprehensive plan for the physical development.
At the direction of Board of Supervisors, or may on its own initiative, make or cause
to be made an official map pursuant to Virginia Code§ 15.2-2233, as amended.
•-At the direction of the Board of Supervisors, or may on its own initiative, prepare and
revise a capital improvement program based on the comprehensive plan of the County for
a period not to exceed the ensuing five years pursuant to Virginia Code§ 15.2-2239, as
amended
At the request of the Board of Supervisors. or may on its own initiative, prepare and
recommend amendments to the zoning ordinance including a map or maps showing the
zoning districts of the County.
At the request of the Board of Supervisors. or may on its own initiative. prepare
and recommend amendments to the subdivision ordinance.
Administer the subdivision ordinance and zoning ordinance as set forth in such.
Make recommendation and an annual report 10 the Board of Supervisors
concerning the operation of the Planning Commission and the status of planning
within the County: and,
Perform any other duty or function of the Planning Commission pursuant to
Virginia Code§ 15.2-2210, et seq., as amended.

ARTICLE 5 - MEETINGS
5-1

Regular meetings of the Commission shall be held on the second Thursday of each
month at 6:30 pm at 10900 Courthouse Road. Charh.:s Citv Countv. Virgini:1, provided
that such meetings mav be held at anv other convenient place if directed bv th.:
Chairperson in advance or the,; 111<.:l!lin� or upon findin� that �uch other location would
sl!rvc the public con,·l!nicncc or necessity. Public hearings will be conducted as needed
during these regular meetings. When deemed necessary, meeting dates may be changed
by majority vote of the Commission present.

5-2

Work Sessions of the Commission shall be held. as needed. on the fourth Thursday of
each month at 6:30 pm.

5-3

Special meetings may be called at the request of the Chairperson or by two members upon
written request to the Secretary. Written notice of meetings shall be given to each member
at least five days prior to such meetings. It shall state the time and place of the meeting and
the purpose thereof.

5-4

All regular meetings. hearings. records. and accounts shall be open to the public. Meetings
may only be closed in accordance with the requirements of the Freedom of Information Act
pursuant to Virginia Code §2.2-371 I.

5-5

A quorum shall consist of not less than a majority of the membership.

5-6

The number of votes necessary to transact business shall be a majority of those present and
voting . .\!et-HlgAll..lQ!..c, shall be l>yrccord..:d ",ca·· and --ua,··; in ..:a,cs "here the vote i, 1101
unanimou� or i:0111inna1ion is n<.:<.:1,;"�rv. a !,J.i.,�tam4,r.QJ.U:all ,011: ,hall b.: rnnducts'd.

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5-7

The Public shall be allowed to address the Planning Commission during the Public
Comment Period. Speakers are limited 10 three minutes p�rintli· ,d�Mt,,....r+-l�
r�t}-llttl�t½-·OHtlH+ft!i!IHl-ilHoo. There shall be no comments during the Public
Comment Period on or relating to a mailer for which a public hearing is scheduled during
the same meeting or for which a public hearing is likely 10 be scheduled within the next
sixty (60) days. In addition, there shall be no comments during the Public Comment
Period on or relating 10 a mailer for which a public hearing has been held by the Planning
Commission previously and which mailer is still pending action before the Planning
Commission.

:i-8

If W<.!athcr or other conditions arc. such that it i, dc..:tcrmincd hv the C'hairpcrsnn thnt it
may be hazardous for the publi(; to a11end a sch.::duled mc.::ting or w11rl-. cssion. th:it
111c..:eting: shall he auto111:1ti((Hlly continued tu the.: following. Thursclny m th.; same 1in11;
and place as the prcviouslv schcd1dcd reg:11Iar 1111:eting. Such dctcrminutinn ,hull he
co111111unicaicd to the other Con1mi,�ion 1m:111hcrs �,nd the P.1\'S, ns promptIv a,
possible.

5-9

In the event (hut a rc2:11larlv scheduled meetin�. spc..:ciallv called ,m:t:tinc. und/or \\Ork
sc,sinn mvetin!! or the Charles Citv C'ou111v Planning Commi,siun co111inu¢, 10 11 :00
Ptvl. the Commission mav. at its ui�cn:tion. adjourn the mct:ting until th� nc•,1
husincss day. pro,idcd thnl 1hc motion nt' adjnurnmc..:nt s1mc. rhc hnur and l<l.:a1ion :11
which the adjourned mc:etin.i i, to b1: rcnmvcnctl.

ARTICLE 6 - RULES OF PROCEDURE
6-1

The order of business for a Commission meeting shall be:
.ll__Call to order by Chairperson
+,-Determination of a Quorum
2)
Public Hearings as needed
3)
Minutes Approval (minutes shall be read prior to approval when not provided
4)
in the agenda packet or whenever requested)
Unfinished Business
5)
New Business
6)
f
Planning Director Staf Report
7)
Public
Comments
(See
§5-7)
8)
Adjournment
9)

6-2

If' a majority of the Commission fails to attend within a quarter hour after the time
appointed for the meeting, the Secretary shall enter in the minute book the names of the
members present and the adjournment for want of a quorum.

6-3

If, in advance of a scheduled regular or special meeting of rhe Commission. the
Secretary is infonned by a majority of Commissioners that they will not be in
attendance. the Secretary shall inform the Chairperson, who may thereafter deem the
meeting adjourned for want of a quorum. If rhe meeting is adjourned in advance of the
scheduled meeting time. notice of the adjournment for want of quorum shall be posted
at the location of said meeting and furnished to the Secretary by 3:00 pm on the day of
the meeting in question.
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6-4

Motions shall be restated by the Chairperson before a vote is taken. No motion will be
acted upon until it has a second. The name of the person making a seconding motion
shall be recorded. Upon a motion and valid second, the Chairperson will call for a
discussion.

6-..IA Thu Sheriff. or his or h..:r deputy. mav be reguir.:d to attend th1.: mee1inu� or th�
Commi�sion lo prc.;scrvc quit:t and order at the direction of the Chai1 pcN>1!,
6--rn Artur a member lws h1:e11 entered a� presem at any nieuling. ht: or she.: shall 11,)1. withnul
kave of' lhi.; Chuirnvrson. ahsu111 hi111sell' or herself' i'nrn1 the 111cditH!.
6-5

Parliamentary procedure in Commission meetings shall be governed by the adopted
rules of order, namely Robert's Rules of Order.

6 -6

The Planning Commission shall keep a set of minutes of all meetings, and these
minutes shall become a public record. All such minutes shall be considered a Draft
Document until they are approved by the Commission. The Secretary shall prepare
a set of minutes for all regular, adjourned, and special meetings. The Chairperson
shall sign all minutes and at the end of the year shall certify that the minutes of the
preceding year are a true and correct copy.

6-7

A majority vote or the Commission pn:,en1 and , u11n� is necessary to advance a
motion. A motion made to approve that does not receive a majority vote does not
constitute a motion to deny. A separate motion to deny is necessary for the case to be
forwarded to the Board of Supervisors with a recommendation of denial. Conversely,
a motion to deny that does not receive a majority vote does not constitute a motion to
approve.

6-8

A regular meeting may be recessed LO another meeting if a motion to do so is
approved.

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prt>se-nt during;-H pn11lt"rl� G+llt"ll-lHt>t'Hn�1-1-1,it1d-tl1t"t'- l?ule-,-Hf ( )1dt'-r,

ARTICLE 7 - PUBLIC HEARINGS
7-1

In addition to 1hose required by law, the Commission, at its discretion. may hold a public
hearing when it decides that a hearing will be in the public interest.

7-2

Applications submitted for consideration at the Commission's Regular Meeting must be
presented to the Zoning Administrator. Applications shall only be accepted by the Zoning
Administrator if deemed to be complete and/or sufficient in detail for review by the
Commission. Application forms are available to the public through the Department of
Planning.

7-3

Notice of a hearing shall be puhlhhctl-in-,Hl<'"""i'"fl<'r "' !,!t'llt'-frll ,·11,·ul,111,•11111 1ht'- ,tr<'� ,111,·t'-"
""<'<'l,-for�ue,c' · I' c .,,,c'<'k.pro, 1<kJ in accordance with § 15.2-2204 of the Code of
Virginia. 1950, as amended.

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7-½

C'ili.'ell', (l'uhlicl "ill he' gi· c'll the' l'J11H>l'llll111!• 1,, ,·,·mm,·111 di! lhc' ,a c' l•do1c 11�
G#ffiffii,,•,i,m-i!HHt!-l'-¼11>1-it'-1-l<'itRn�c;;llei!�HJ.l..ilt.'+im,1<'tl-HHh-1H1111k.'--ti.;1 ""1,..,1,lu;il,
Thc' Si,;11 l'jl Shc'c'I "ill hc' u c'd 1<• mil real«·r IP 1hc' ic'clcm. Sj'c'ili,c'f' ..111 1a1e 1he11· 11.1mc'.
���Fc'-k."f-lllill�lll_..llh<'l+t'-r.-,t�ltt\lJl:-ttf-rllH>�ltt-.'-rllit•fl,.{-)1h.;i�1II
fie! gi,,• 11 lhc! lljlJ1lll1llllll) ICI )'t!al,Hl°ic't li�c' S1,!II l'1i Shc'c'I i,c'',h.++�

�Public Hearing Procedures:
I)

The r.,hairperson shall call the meeting to order and remind the public of the
Sign-Up Sheet(s) located at the back of the Auditorium.

2)

The Chairperson will make a brief statement identifying the matter to be heard and
verify with the Secretary that all proper legal notice requirements have been met.

3)

The Chairperson shall explain the Hearing Procedure & Rules.

4)

Presentation of Staff Report.
Staff will give a brief description of the applicant's request:
compliance with Zoning Ordinance.& Comprehensive Land Use Plan:
and Staff's recommendation pf �ny).

5)

Presentation by Applicant.
�\j>pltca11t hall h,n<' the 111i1•1lf1,m11: 10 .,:11 ,· ,1 111<' c'lll..-1+<
The Applicant, or representatives of the Applicant. will be allowed ten ( 10)
minutes. at a minimum, as determined by the Planning Commission, to
introduce information regarding the matter advertised for public hearing.
All comments are to be pertinent to the issue being considered _,111hc l'uh,ltc
I kari11s:_.

�Public Hearing Open to Puhl 11: Comments.
H· ,'>pcakcr, ,hall he l11n11ed 1t11l11ce 111inu1c, pct 111lh\fuual . rlic S1�11 � p Shccl \\Ill
he u,cu 111 call ,,wah·r, 10 the k',ll'l'll. Spl·akcr, ""' ,1,1ll' 1he11 11'1.!!!£:111,� ,01111�
u1 '1rn:1. ,Other, ,11II he "l\,n 1lw 1•pp,1rtu1111, IP ,peak alle1 1hc St�II l p Shn:I"
c,hau,1cd. All <.'lllllll1l'llh ,Ill' Ill ht· Jl�l llllt'lll Ill lhc '"� ,'1l11"lk11:u :ti lhc·
l'uhl1.: I karin!!.
7)

Once all comments have been received, the Public Hearing shall be closed
to comments, and 1he D.�pplicant or representatives of the Applicant may be
allowed five (5) minutes to address any issues identified by the public.

_Rl__ Planning Commission discussion. questions, comments. and/or motion.

ARTICLE 8-STAFF
8-1

The Charles City County Board of Supervisors shall provide administrative and technical
suppon to the Officers and members of the Charles City County Planning Commission in the
performance of their duties. This support shall include but not be limited to:
The preparation and/or typing of the agendas. the minutes. notices and
recommendations, and 01her clerical needs of the Commission.
The preparation of the meeting packet. The meeting packet shall include the agenda. and
all the information needed to deal with 1he issues thereon, including the minutes of the last

meeting.

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Keeping written record of all business transacted by the Commission.
Notifying all members of all meetings.
Giving notice of all Public Hearings and meetings.
Attending to the correspondence of the Commission.
Preparing and being responsible for the publishing of advertisements relating to
public hearings.
Educating and keeping the Commission abreast of planning issues.
Preparing written recommendations on applications for zoning, subdivision, and
conditional use permits.
Assisting and advising the Planning Commission in developing and revising land
use, Ordinances. the Capital Improvement Program. the Comprehensivc Plan. etc.
_. _Serving as the representative of the Planning Commission to the Board of
Supervisors, the public and other public or private entities in mailers of land use.
ARTICLE 9- IIENEFICIJ\f. USE: N(> TIIIIW-1',\RTY Rl<;ir rs
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t·ffidc1H condui;t or 1hc businc,, ul 1h, · Chnrlc, Cilv Cou1111 Plunning, Comrnis,ion. ·1 hc,e Ruic, ar,•
imcndcd exylusivdv for the int!Crni,I �ovcrnan,c 1111d benefit or th, Cominis,1011 aqd it, mcmhcn,.•
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cq1iticn1cm. or cuust; or ai;tion in favor of ,1111 :ippli..::1111. pr!lpcrtv own1:r, member of 1hc public. or
01Jwr third panv: No p,r,on O(ht;r than a ll}ClllD\iJ' or 1hc Commi,sion shull have Sl(IIH.jing to t'h;ilkng1:
;1nv .l<:tion nr d..;d�ion orthv Commission on the hasjs of an alkgcd raihuc ill t'lllllJll\ with th�•,c
Rult:�.,
9)
The r;1i lur..: tll lhC Cu,nm is,ion tu Mrit'll\',01npll \\ ith :till' pt(II i,jun llf \hCS!r Ruic, of Ordc1
,hull nntiovalic,l;11c· nuy nctinn (J ulv rnkc11 hv thy <;o,npus,mn. np1 shall i1 ,·n:111,· �11, righ110111i1)J;iJI ,w
rcvit: w on 1h, bn,i, of' suth no11�111nplia11,·� ulo11c. ,'\II\ prnl'o:<lun1I irrc1;ul11rity unu�r 1hc,c Ruic, sh;,11
be subjcq 10 .;vrrct•1ion onlv hv 1h, ('umm[s,ipp it�c,11. in j1, ,1ik diM:rctiii11.
1).4
The Comml,,iun rc,.:rvc1> the rii.:ht t,1 w;;ilc. rnodifv. C>r ,u,pcll\l ;uiv 1,mwi,ion ,if th,s,· Ruk>
ofOrder l)v 11,upcr-n 1njori1v Cl/3> vote l1f lhv me1nb.:r, pry,..:111 unu vuting ;11 :1111 propcrlv ,ullcd
mcctill!!. c,ulsi�tcnt with r,pplkahk law.

9

BOARD OF SUPERVISORS
THE HONORABLE BYRON ADKINS SR.
THE HONORABLE RYAN PATTERSON
THE HONORABLE MICHAEL HILL

COMMONWEALTH OF VIRGINIA
COUNTY o/CHARLES CITY

COUNTY ADMINISTRATOR KEITH C. ROGERS, JR

TO:
FROM:
DATE:
RE:

Charles City County Planning Commission
John M. Dugan, FAICP, Director of Community Development
September 10, 2026
Recommended Changes and Improvements - 2045 Comprehensive Plan Draft

The following outlines the recommended changes and improvements to the 2045 Comprehensive Plan draft,
addressing both the substance of the draft plan and the process by which it is being developed. These
recommendations are provided for the Commission's review, consideration and direction to staff.
Recommended Changes to the CAC Draft Plan
From the revised outline of the Comprehensive Plan.
Structural
• Reorganize into four pai.ts: Framework - Policy Chapters - Implementation - Existing
Conditionsff echnical Appendix (policy first, evidence behind it)
• Add an entirely new Implementation part, which does not exist in the current draft, including an action
matrix, priority initiatives list, capital improvements program, ordinance amendment schedule, and plan
administration procedures
• Move all technical/data content out of policy chapters into a technical appendix, so the plan itself stays
concise
New Content Areas
Review and validate draft chapters on county history, environment, facilities, transportation network, planning
history, and related map series.
• Add a new chapter on energy, technology, and lai.·ge-scale industrial facilities (data centers, solar, siting
standards) which addresses a major gap in the current draft
• Add a new chapter on tribal lands and government-to-government relations with the Chickahominy
Indian Tribe and Chickahominy Indian Tribe-Eastern Division
• Add a new "What the Numbers Tell Us" chapter summarizing demographic/housing/fiscal analysis and
stating plainly whether this is a growth, stabilization, or managed-change plan
• Add a new Existing Conditions and Growth Forecast appendix (population/household projections,
housing demand forecast, commercial/industrial market analysis, fiscal and buildout capacity analysis),
data the current draft promises but doesn't deliver
• Add new vision/mission statements and 5-7 guiding principles to organize the whole plan

Statutory Compliance Gaps to Fill

• UDA sizing rationale tied to projected growth, plus required financial incentives and consultation
documentation(§ 15.2-2223.1)
• Groundwater availability/sustainability measures(§ 15.2-2223(C)(4))
• Resilience chapter - flooding, extreme heat, drought, hazard mitigation(§ 15.2-2223(F))
• Broadband strategy(§ 15.2-2223(E))
• Transportation map with VDOT cost estimates and consistency statement with state plans(§ 15.22223(B)(2)-(3 ))
• Transportation/access provisions for elderly and disabled residents(§ 15.2-2223(B)(l))
• Affordable housing designated areas and implementation measures(§ 15.2-2223(D))
Other Substantive Fixes

• Reconsider the LEED Gold mandate in housing policy; convert to an incentive or drop
• Complete the "You Said, We Changed" record documenting how public input shaped the draft
• Add a glossary/acronyms section and a list of adopted/referenced documents
Recommended Changes to the Public Process
From the outreach process memo

• Correct the participation figure(reported -1,500/22%; actual -150/2%) and stop characterizing the draft
as reflecting community consensus
• Gather data and public input together, in one stage, before drafting begins(reverses the original
sequence)
• Adopt a written Public Engagement Plan up front, with published participation targets
• Confirm Planning Commission as steering committee for the Plan
• Request technical assistance from PlanRVA
• Procure the household survey immediately rather than waiting for the engagement stage
• Shift outreach to where residents already are(convenience center, schools, churches, civic groups)
instead of relying on evening meetings
• Run a statistically valid survey and an open survey in parallel, reported separately
• Hold a standalone, clearly separate forum on data centers/energy facilities so it doesn't dominate other
discussions
• Conduct formal government-to-government consultation with the two Chickahominy tribes, initiated by
the Board
• Test three growth scenarios and the Future Land Use Map publicly before finalizing
• Release plan chapters as they're completed rather than as one large document
• Send written notice to property owners facing designation changes(not legally required, but
recommended)
• Publish a plain-language "You Said/ We Heard/ The Plan Does" report to every household before
adoption
• Build in a decision gate after the input stage. If participation targets are missed, extend that stage rather
than adopt on a thin record
Staff will be available at the Commission's next meeting to discuss these recommendations in further detail,
answer any questions and receive direction.

CHARLES CITY COUNTY

·

DRAFT PLAN OUTLINE

Draft Organization of the 2 045
Comprehensive Plan
A proposed structure for the plan, what must be added to satisfy Virginia law, and
the order in which the remaining work should proceed. John M Dugan FAICP

Planning Commission work session Septen1ber 10,2026

PURPOSE OF THIS OUTLINE

A Replacement, With Some Chapters Maintained
MAINTAINED

The county history, the environmental inventory, the community facilities
inventory, the planning history, and the map series. This material, once
verified, can be substantially retained as written and relocated to the Part
IV appendices, where it can be updated without amending the plan.

Two things must be completed before the plan can
be finalized

0

State mandates and current conditions

The reporting required by Va. Code § 15.2-2223 - the largest single
addition to the plan and its longest lead item. It requires no public input
and can begin immediately.

REPLACED

The plan's structure, its vision and mission, and the goals, objectives, and
strategies of every policy chapter. These are drafted new, not relocated. The
November draft's goals are one input to that drafting, alongside the
outreach findings and the alternatives analysis, rather than a starting text to
be edited.

• An expanded program of public outreach
The plan's vision, mission, and guiding principles are to be derived from
it - not written first and confirmed later. The November draft's
statements stay provisional until then.

HOW TO READ IT

Four Annotations Run Through the Outline
CARRY FORWARD

INSERT

FROM OUTREACH

Material from the Committee's
November draft, relocated - with
page reference where known.

New material to be prepared - with
source and owner named.

Content that cannot be drafted until
the engagement program and the
alternatives analysis are complete.

A question requiring Planning
Commission, Committee, or Board
direction.

The inventory and record chapters:
county history, environmental
inventory, facilities inventory,
transportation network data, planning
history, and the map series. Retained
substantially as written, once verified.
Redrafted of new information is
available.

The statutory compliance table, the
existing conditions appendix, the
demand-to-capacity reconciliation, and
the two new chapters (Energy &
Technology; Tribal Lands).

Chapter 2 entire - vision, mission,
guiding principles - the "What We
Heard" findings, and the goals,
objectives, and strategies of every Part
II chapter.

Eight of them, listed later in this
presentation. They are the items that
cannot be resolved by staff in drafting.

DECISION

SEQUENCE OF WORK

Two Tracks Begin Now; Neither Waits on the Other
TRACK A

TRACK B

State mandates and current conditions

Public outreach

Submit the transportation element to VDOT - 90-day comment clock,
required before adoption. Compile the statutory compliance audit. Begin
existing conditions and the growth forecast. No public input required;
longest lead time; the county's first priority.

Design and conduct the issues and opportunities program described in
Chapter 3, structured as a SWOT analysis and held in each part of the county
rather than in one county-wide meeting.

Then, in order

• DIRECTION

• ALTERNATIVES

• POLICY

• IMPLEMENTATION
AND ADOPTION

From Track B, the vision, mission, and
guiding principles. From Track A, the
summary of what the demographic,
housing, market, and fiscal data show.

Test growth alternatives publicly current trends, concentration in the
centers, dispersed rura I growth - each
with its fiscal and service consequences.
This settles the strategic question.

Only now are the goals, objectives, and
strategies drafted, chapter by chapter,
against a settled direction. The November
draft's goals are an input to that work,
not a starting text.

Build Part Ill. Complete the statutory
checkpoints. Advertise and adopt.

The vision cannot be written before the outreach that produces it. The goals cannot be written before the vision that directs them, the data that grounds them, and the
alternatives analysis that settles the county's direction. But the mandates and data work can begin immediately - and should.

THE PROPOSED ARCHITECTURE

Four Parts, Twenty-One Chapters, Nine Appendices
PART I

PART II

PART Ill

PART IV

Framework

Policy Chapters

Implementation

Existing Conditions

30-35 pp · Ch. 1-5

110-130 pp · Ch. 6-15

20-25 pp · Ch. 16-21

90-110 pp · App. A-l

Legal basis and statutory compliance ·
Vision, mission, guiding principles·
Public engagement and what we
heard · What the numbers tell us
Growth management framework

Land use · Rural character and historic
resources· Water and environment·
Energy and technology · Housing·
Economic development ·
Transportation · Community facilities·
Community design· Tribal lands

Action matrix· Statutory compliance
tracking· Priority initiatives· Capital
improvements program· Ordinance
amendment schedule· Plan
administration

Existing conditions and growth
forecast· County history·
Environmental inventory· Facilities
inventory· Public engagement record
· Planning history· Maps· Glossary·
Referenced documents

Part IV is designed to be updated independently of the policy chapters - so the data con be refreshed without amending the pion. Each Part II chapter follows the some
structure: context and issues, then goals, objectives, and actions, with every action carrying a reference number used in Port Ill.

CHAPTERS 1-5

THE PLAN'S DIRECTION AND LEGAL FOOTING

Part I - Framework

•
•
•
•
•

Introduction, Legal Basis, and Statutory Compliance

INSERT

Adds a section distinguishing the plan's five uses - rezonings, administrative review, capital budgeting, § 15.2-2232 substantial accord findings, and
guidance to landowners - and a compliance table stating in one place how the plan satisfies each requirement of Virginia law.

Vision, Mission, and Guiding Principles

FROM OUTREACH

This entire chapter awaits the outreach. The November draft's mission states the county "aims to grow" - a premise that depends on projections
which may show continued decline. Put the question to participants rather than resolve it in drafting.

Public Engagement and What We Heard

INSERT

Sits in Part I because the plan's direction derives from it. Includes an accurate account of the 2024-2025 process - approximately 150 participants,
not the 1,500 the November draft reports - and the design of the expanded program.

What the Numbers Tell Us

INSERT

A short summary of Appendix A: population and households, what that means for housing and for commercial and industrial development, the
county's fiscal position, and the strategic question - growth, stabilization, or managed change.

Growth Management Framework
Development centers, Urban Development Areas, neighborhood and community service areas, rural area policy, tribal lands, and a new growth
management map.

CARRY SOME FORWARD

CHAPTER 5 IN FOCUS · ROXBURY AND COURTHOUSE · § 15.2-2223.1

Urban Development Areas Carry Six Statutory Duties
Density and intensity

Sizing rationale

At least 4 single-family homes, 6 townhouses, or 12 multifamily units per
developable acre, and a floor area ratio of at least 0.4 for commercial. These are
statutory minimums, not the adopted figures.

Areas sized for 10-20 years of projected growth, based on Weldon Cooper, VEC,
Census, or federal transportation projections. Supply the projections, the acreage
required at adopted densities, the acreage designated, and a reconciliation.

Traditional neighborhood design

Incentives

Pedestrian-friendly roads, street interconnection, network connectivity, preserved
natural areas, mixed use and mixed housing types with affordable housing meeting
projected income distributions, reduced setbacks and street widths.

The plan must describe financial and other incentives.Candidates already in the
November draft: tax increment financing, a business improvement district,
technology and enterprise zones, an arts and cultural district, business growth
grants.

Regional consultation

Five-year reexamination

Consultation with adjacent localities, the planning district commission, and the
metropolitan planning organization on size and location - documented, with dates
and outcomes.

Boundaries and size reexamined every five years alongside the plan review, against
the most recent population estimates and projections.

DECISION

The specific densities and floor area ratio the county adopts for each area - a priority for discussion and determination. The statutory figures
are floors, not recommendations. Should the county actually have state statutory urban development areas? Recommend hold on this topic
until public outreach data is available.

EACH WITH CONTEXT AND ISSUES, THEN GOALS, OBJECTIVES, AND NUMBERED ACTIONS

Part II - Ten Policy Chapters, Drafted New

•
•
•
•
•

land Use
Adds a demand-to-capacity reconciliation - what lets the county justify both
an approval and a denial.

Water Resources and Environment
Documentation of environmental issues, such as, wetlands, sole-source
groundwater, Chesapeake Bay watershed.

Housing
Adds demand by tenure and income band, and the designated affordable
housing areas§ 15.2-2223(0) requires.

Transportation
Statutory items here are Track A and begin immediately, including the VDOT
cost-estimate table.

Community Design
Adds design standards for the development centers and the Route 5 corridor.

•

Rural Character, Agriculture, Historic
Adds agriculture as economic activity, a farm inventory, and Route 5 corridor
viewshed policy.

Energy, Technology, Industrial
• A new chapter. The November draft addresses data centers in a single

•
•

paragraph.

Economic Development
Adds market reality - retail leakage, commuting outflow, supportable square
footage - and revenue diversification limits.

Community Facilities and Services
Adds broadband coverage, gaps, and target service levels under§ 15.2-2223(E).

Tribal Lands and Government Relations
• A new chapter, drafted with both tribes and reviewed by them before
publication.

Chapters 9 and 15 are wholly new. In every chapter, the goals, objectives, and strategies are drafted only after the outreach findings and the alternatives analysis are in
hand - the November draft's goals are an input to that drafting, not text carried forward.

CHAPTER 9 IN FOCUS · ENTIRELY NEW MATERIAL

A New Chapter on Energy, Technology, and Large Facilities
Why the county is considering these uses
The fiscal position stated plainly, including the revenue volatility participants raised.

Performance expectations, written for translation into
ordinance
•

Noise limits at the property line

•

Setbacks, buffers, screening, and lighting

What the county has already learned

•

From the landfill host relationship, utility-scale solar, the merchant gas plant proposals, and
the data center applications.

Water source and consumption disclosure; groundwater
monitoring

•

Generator standards and testing hours

•

Decommissioning surety

•

Applicant-funded fiscal and community impact analysis

•

Host agreements, revenue verification, and audit rights

Where these uses are appropriate - mapped

Roxbury industrial corridor, the Route 106 Industrial Corridor Overlay, industrial reserve
areas, the landfill reclamation area, and transmission corridors of 150 kV and above.

Where they are not

Route 5 and its viewsheds, tribal lands and cultural resources, Bay Resource Protection
Areas, prime agricultural soils, and proximity to dwellings, schools, and places of worship.

DECISION

Numeric standards - noise limits at the property line, setback distances,
and whether decommissioning surety is required. And whether any of
these should be adopted as an interim ordinance amendment ahead of
the plan.

CHAPTERS 16-21

IMPLEMENTATION

Part III - What Makes the Plan Governable

A Action Matrix

A Statutory Compliance Tracking

�ction in Part II with responsible party, time horizon, order-of-magnitude cost and
funding source, and the measure by which completion is judged. The November draft already
assigns horizons - Short, Mid, Long, Continuous. The remaining three columns are the
addition.

�ing table of each state mandate, the date last satisfied, and the next required action
- including the five-year review, the UDA reexamination, and any transportation
amendment triggering further VDOT review.

A Priority Initiatives

A Capital Improvements Program

Weight commitments for the first five years, drawn from the Committee's own list of
needed instruments: revised zoning, subdivision and site plan ordinances, energy and data
center siting standards, a capital improvements program, the master water and sewer plan,
groundwater monitoring, small area plans, tribal consultation practice, derelict structures.

�ear program, or a stated commitment with a date certain. The November draft directs
the county to use a CIP while also listing one among the instruments it still needs - resolve
by preparing the program or conforming the strategies.

• Ordinance Amendment Schedule

• Plan Administration

Amendment, purpose, target date, chapter reference - covering energy and data center
siting, a numeric noise standard,§ 15.2-2232(0) utility standards, third-party review and cost
recovery, the UDO, density districts, a rural business district, and two housing tools.

Amendment procedure, the five-year review commitment with the next date stated, an
annual implementation report to the Board, and the monitoring indicators tracked each year
- including participation in county planning processes.

PART IV · EXISTING CONDITIONS AND TECHNICAL AP PENDIX

Appendix A Should Begin Immediately
APPENDIX A - EXISTING CONDITIONS AND GROWTH FORECAST

The remaining appendices, which require
verification.
B. County History

The largest addition to the plan, the longest lead item, and the foundation for
Chapters 4, 5, 6, 10, and 11. It requires no public input and should begin
immediately.
A.1 Demographic base and trends
A.2 Population and household projections to 2045

CARRY FORWARD

Retained in full from the November draft - a genuine asset of the plan.

C. Environmental Inventory

CARRY FORWARD

Soils, riparian land, shoreline erosion, floodplains, impaired waters, Bay areas,
wetlands - Maps 2-13, Tables 1-6.

A.3 Income, employment, and commuting
A.4 Housing inventory and condition
A.5 Housing demand by tenure and income band

D. Community Facilities Inventory

CARRY FORWARD

Facility detail and Map 7.

A.6 Building permits and land absorption
A.7 Commercial and industrial market analysis
INSERT

A.8 Fiscal and tax base analysis

E. Public Engagement Record

A.9 Buildout and capacity analysis

The 2024-2025 process with verified response rate, the expanded program, and
the tribal consultation record.

Satisfies§ 1.5.2-2:?23(1\) and supplies rhe bos1s required IJV§ 15.2-2223.1 (B!(.:'i. ,,ios, of 1i1:?
work is assembly rath2r rhon orig/no/ research; nearlv all sources W:? free a•id pfO')l)inCj
distnct assistance is ovuilabie.

H. Planning History, Maps, Glossary

MIXED

Maps 1-19 carried forward; new growth management, UDA, siting, transmission,
capacity, and broadband maps added.

WHAT STAFF CANNOT RESOLVE IN DRAFTING

Eight Questions Requiring Direction

•
•
•

Ch. 1

Whether to state a target adoption date for the updated development
Ordinances in the plan.

Ch. 5

The specific densities and floor area ratio adopted for each Urban
Development Area. A priority for determination if urban development areas
are designated.

Ch. 6

Should small area plans be developed subsequent to adoption of the
Comprehensive Plan? If so:
Which small area plans come first, and in what sequence?

Chickahominy IndianTribe Fall Pow-wow engagement opportunity?
•

•
•
•
•

Ch. 3

Number of outreach sessions, locations, and schedule and whether
Commission members attend or receive results.

Ch. 5

Whether density districts: rural, low, low-moderate, moderate, high, are
stated in Chapter 5, in Chapter 6, or deferred to the revised zoning
ordinance.

Ch. 9

Numeric standards for noise, setbacks, and decommissioning surety and
whether to adopt any as an interim ordinance amendment ahead of the
plan.

Ch. 18

Confirmation of the priority initiatives list and its order.

NOTES FOR STAFF

What Can Proceed Now, and What Must Wait
PROCEEDS NOW

MUST WAH

•

The VDOT transportation submission - it starts a ninety-day clock
that runs in the background of everything else.

•

The vision, mission, and guiding principles - they await the outreach
that produces them.

•

The statutory compliance audit and table.

•

•

Appendix A - existing conditions and the growth forecast. Longest
lead time, no public input required.

The strategic question - growth, stabilization, or managed change which the alternatives analysis settles.

•

•

Design of the issues and opportunities outreach program.

•

Review and verification of potentially retained chapters, e.g. History,
Agriculture, etc.

The goals, objectives, and strategies of every Part II chapter. They are
not carried forward: they are drafted after the outreach findings and the
alternatives analysis, with the November goals as one input among
several.

Three housekeeping items before further circulation: Recommend removing November partial draft from
County website. Consider preparing a new website for the Comprehensive Plan process.
Terminology

Blank fields

Proofreading

The November draft alternates between "County" and
"Community," including inside statutory references and
department names. Adopt one convention recommend "County."

The Community Forum section contains unfilled dates,
attendance figures, and percentages. Complete or revise
them.

Typographic errors persist, including in headings and the
list of maps. The document should be clean before it is
advertised for hearing.

THE COMPANION RECOMMENDATION

The Outreach That Produces the Direction
Track Bis set out in full in the accompanying memorandum: a five-stage process, each stage ending in a defined product
and a decision gate, with adoption in December 2027 .

•

Plan Initiation

•

Data+ Community Input

•

Plan Preparation

•

Review+ Adoption

•

Sep - Oct 2026

NOY 2026 - Mar 2027

Aor- - :..l!� 2027

Sep - ca riv 2c::s

i=rorr, 2028

Implementation

What this outline asks of the Commission and the Board
•

Authorize Track A to begin immediately - the VDOT submission, the
compliance audit, and Appendix A.

Confirm the outreach program design in Chaprer 3: sessions, locations,
schedule, and partners.

Correct the participation figure in the November drah from ~1,soo to ~1so
before further circulation.

Give direction on the eight decision items, or set the meetings at which each
will be taken up.

Adoption target: FEBRUARY 2028 - on o focrua! record and a parricipation r;:cord ,hat can defend ,he pion.

CHARLES CITY COUNTY · DRAFT COMMUNITY OUTREACH PROCESS

Draft Community Outreach Process
for the 2045 Comprehensive Plan
Five stages, each ending in a defined product and a decision gate - built to reach residents where they
already are, with adoption targeted for December 2027 or early 2028. John m Dugan FAICP

Planning Commission Workshop Sept. 10 2026 John M Dugan, FAICP Director of Community
Development

THE STARTING POINT

Where We Stand: The Record Must Be Corrected
What 2% participation means
The November 2025 CAC draft claims
Vision is provisional

residents (22%)
The correct figure is approximately

15 0

Vision and mission statements lack a demonstrated public foundation and must be re-derived.

Land use map untested
The Future Land Use Map has not been tested with the property owners it affects.

>e2%ofthecounty

The draft also contains no demographic, housing,
or economic data - concl usions about growth
without supporting analysis.

No consensus defense
The plan cannot be defended as community consensus in rezoning or special use permit
proceedings.

Statutory exposure
Any Urban Development Area designation rests on a record that would not withstand § 15.22223.1(8)(2) review.

Neither condition is fatal - but both ore correctable only by doing the work, not by restating the
claim.

HOW THE PROCESS IS BUILT

Eight Principles Behind the Design

•
•
•
•

Plan the engagement first
A written, adopted Public Engagement Plan is the first product - the
standard the county can be held to.

Keep data out of the plan and in the Appendix
The plan states goals and strategies; tables live in a companion report that
can be updated separately.

Go to residents
A staffed table where people already are beats an evening meeting at the
courthouse that reaches few citizens.

Record opposition
Write down what residents do not want. A plan that suppresses opposition
won't survive its first test.

•
•
•
•

Evidence before drafting
Gather community input and data together, in one stage, and finish both
before a chapter is written.

The hearing is the receipt
The statutory hearing is not engagement - everything that matters
happens in the 15 months before it.

Anchor on places
"What should happen along Route 5?" produces arguments - and
arguments produce policy. Platitudes don't.

Show alternatives
Residents decide better among three scenarios with consequences than
judging one finished draft.

THE PROCESS AT A GLANCE

Five Stages, Five Products, Five Decision Gates

•

•

•

•

PLAN INITIATION

DATA+ COMMUNITY
INPUT

Sep - Oct 2026

Nov 2026 - Mar 2027

Apr - Aug 2027

Sep - 2027-Feb 2028

From 2028

Adopt the Public Engagement
Plan; procure the survey.

Workshops, 20+ intercept
sessions, surveys, stakeholder
and tribal consultation.

Three growth scenarios, map
open houses, staggered chapter
releases, comment period.

"You Said/ We Heard" mailer,
stakeholder return visits,
statutory hearings.

Capital Improvement Plan
linkage, budget linkage from
FY2029, annual reporting, five­
year review. Code amendments.

Product: Adopted Engagement
Plan

Product: Existing Conditions &
Community Input Report

Product: Public Review Draft+
Comment Log

Product: Adopted 204S

Comprehensive Plan

Product: Annual Implementation
Report

Gace: Boord ouchorize.1 procC's.1,
schedule, budget

Gate: Commission accepts record,
adopts vision

Gate: Commission releases draft for
hearing

Gate: Adoption, late 2027 or early
2028.

Gate: Annual Board review m open
session

PLAN PREPARATION

REVIEW + ADOPTION

Each stage closes only when its product is delivered and its gate is decided. Stage 2 is the only gate allowed to move the calendar.

IMPLEMENTATION

DATA COLLECTION+ COMMUNITY INPUT· NOV 2026- MAR 2027

Stage 2 Carries the Weight of the Process
3 district workshops

20+ intercept sessions

Issues & Opportunities sessions, one per magisterial district, framed as two questions
residents will actually answer.

The core of the strategy: a staffed table where residents already gather - the
convenience center above all, plus schools, churches, fire departments, the library,
post offices, the Farmers Market. 20+ sessions x 25 contacts= 500 residents.

Dual surveys

12+ stakeholder meetings

A statistically valid mail survey of ~400 households (with phone follow-up) plus an
open online/paper survey - reported separately, never merged.

Chamber, EDA, schools, Farm Bureau, agricultural and forestal landowners, churches,
civic organizations.

Tribal consultation

Youth + data center forum

Government-to-government consultation with both federally recognized
Chickahominy tribes - initiated by the Board, early enough to shape the plan. Not
public outreach.

A high school civics-class session, and one standalone forum on data centers so the
issue doesn't consume every other meeting.

Delivered before drafting begins: one Existing Conditions & Community Input Report - data, SWOT, and "What We Heard" with disagreement shown, not
averaged away.

STAGES 3 AND 4 · APR - DEC 2027

Draft in the Open, Then Close the Loop
STAGE 3 - PLAN PREPARATION
Apr - Aug 2027

STAGE 4 - REVIEW & ADOPTION
Sep - Dec 2027

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Three growth scenarios - current trends, designated centers, dispersed
rural - each shown with fiscal and service consequences, preferences
balloted and published.
Three Future Land Use Map open houses: printed maps on the wall,
markers in residents' hands - where the plan meets the parcel.

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Chapters released as finished, not as one 250-page document.

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Written notice to owners of land proposed for a changed designation not required, done anyway.-

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A fiscal reality-check session, and a 30-day comment period with every
comment answered in writing.

A one-sheet "You Said/ We Heard/ The Plan Does" report mailed
to every household - the document that converts participation
into trust.
Return visits to every stakeholder group from Stage 2, so
participation ends where it began.
Planning Commission hearing and recommendation(§ 15.2-2225);
Board hearing and adoption(§ 15.2-2226).
Notice requirements calendared first, working backward from
formal public hearing dates: ads once a week for two successive
weeks, second publication 5-28 days before the hearing.

PARTICIPATION TARGETS, PUBLISHED AND REPORTED AT EVERY GATE

What Gets Counted Gets Managed

400

500

unique residents engaged (10%)

statistically valid survey households

intercept contacts where people gather

VS ~]50 (~2%) in 2025

vs none in 2025

vs none ,n 2025

500

300

12+

open survey responses

workshop and forum attendance

stakeholder organization meetings

not reported in 2025

vs ~150 in 2025

not reported in 2025

Distribution matters more than the total
No magisterial district below 20% of total participation · at least 15% of participants under age 40 · 100% of written comments logged and answered. 700
residents drawn from one district and one age cohort have not engaged the county.

RESOURCES - AND WHAT DECEMBER 2027 R[QUIRES

Modest Budget, Real Staff Commitment

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Four things must be true for a 15-month schedule

Indicative cost

$31,000 - $59,000
Valid household survey (n:::400)

$12,000-18,000

Facilitation support

$8,000-15,000

Printing and countywide mailer

$6,000-9,000

Meeting costs incl. childcare

$3,000-5,000

Story map and web presence

$2,000-4,000

Data analysis (with PlanRVA)

$0-8,000

Corridor study (if CPAP grant)

$0

Staff time is the real constraint: ~120 staff-hours of intercept work in o
five-month window, calendared in advance and protected.

Procure the survey in Stage 1
Design, sampling, mailing, and follow-up take 4-5 months. Started in Stage 2, the
results arrive after the record closes.

Build for winter
Stage 2 runs Nov-Mar: no county fair, no outdoor events. Intercepts must use year­
round venues - which argues for more sessions, not fewer.

Overlap Stages 3 and 4
Chapters released as finished; stakeholder review begins before the full draft is
complete.

Only one gate may move
If Stage 2 participation falls short, extend Stage 2 into early 2028 - never adopt on a
thin record.

EACH WITH A MITIGATION ALREADY BUILT INTO THE PROCESS

Risks, Named and Managed
The data center matter absorbs the process

Participation targets are missed

Mitigation: A dedicated forum early in Stage 2, an honest written account of what
the county can control under the Dillon Rule, and firm facilitation everywhere else.

Mitigation: Monthly tracking against target; expand the intercept program rather
than close the stage. The Stage 2 gate makes this a conscious choice, not a drift.

The schedule slips
Mitigation: Build float into the published schedule; calendar the § 15.2-2204 notice
requirements first and work backward; treat decision gates as the real checkpoints.

RECOMMENDED IMMEDIATE ACTIONS

Eight Actions to Take Now
Direct staff to prepare a written Public Engagement Plan for joint Board­
Commission adoption within 45 days.

Confirm the Planning Commission as steering committee.

Authorize requests for PlanRVA technical assistance.

Begin survey procurement immediately, in parallel with the Engagement Plan.

Correct the participation figure in the November 2025 CAC draft (~1,500 ➔
~150) and remove claims of established consensus.

Begin assembling the Existing Conditions & Community Input Report on the
county's own account.

Have the Board Chair initiate consultation with the Chickahominy Indian Tribe
and the Chickahominy Indians - Eastern Division.

The destination: an adopted 2045 Comprehensive Pion, late 2027 or early 2028- resting on a participation record that can defend it.