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HomeMy WebLinkAbout10 22 85 PC MinutesOctober 22, 1985 The Albemarle County Planning Commission held a public hearing on Tuesday, October 22, 1985, Meeting Room 7, County Office Building, Charlottesville, Virginia. Those members present were: Mr. David Bowerman, Chairman; Mr. Richard Cogan, Vice - Chairman; Mr. Harry Wilkerson; Ms. Norma Diehl; Mr. Richard Gould; Mr. Tim Michel; and Mr. James Skove. Other officials present were: Mr. John Horne, Director of Planning and Community Development; Mr. Ronald Keeler, Chief of Planning; Mr. David Benish, Planner; Ms. Amelia Patterson, Planner; Mr. Frederick Payne, Deputy County Attorney; and Ms. Patricia Cooke, Ex-Officio. The Chairman called the meeting to order at 7:30 p.m. and established that a quorum was present. The minutes of the October 8, 1985 meeting were approved as written. Thomas D. Blue Final Plat - Proposal to divide one 2.092 acre parcel on an existing exclusive twenty foot right-of-way off Wild Flower Drive in Key West Subdivision. Residue acreage of 55.18 acres to have access on Chestnut Ridge Road. Tax Map 62, parcel 49F. Zoned RA, Rural Areas. Rivanna Magisterial District. It was determined this item had been withdrawn by the applicant. Covey Hill Preliminary Plat - Proposal to divide 97.388 acres into 3 lots of 5.0 acres each, leaving a residue of 82.388 acres. Lots to be served by private road, Covey Hill Road, located off the north side of Windsor Road in Farmington. Zoned RA, Rural Areas (only one development right remains with the residue). Located between Flordon and Farmington, adjacent to the Farmington Country Club. Tax Map 59, parcel 59A. Samuel Miller Magisterial District. Ms. Patterson gave the staff report. She pointed out that the section of the road which the County Engineer is recommending be upgraded is that section from the intersection of Oak Circle North and Farmington Drive to where Ivy Lane and Windsor Roads split off. She emphasized that staff is recommending that the roads from Route 250 to the entrance on Windsor Road be upgraded to public road standards, but remain privately maintained. Ms. Patterson also pointed out that, after having met with the Engineering Department, the applicant's attorney and various planning members to discuss the Subdivision Ordinance and the waivers which are allowed, it was determined that the road design standards may not be waived in this case, i.e. because it is not a family division which would be subject to other provisions. She cited sections 18-36(d)(1) and 18-36(e)(4) as not be- ing subject to a waiver request (Section 18-36h). October 22, 1985 Page 2 Ms. Patterson read from the County Engineer's comments which explained what would be required in the upgrading: Category 1 Basis: Pavement width must be 20 feet; shoulder width 5 feet in a fill, 4 feet in a cut. She added that the County Engineer was uncertain as to the cost of the improvements and had stated that cost was not an issue and that "development has exceeded road design as it exists." Ms. Patterson stated the property also has frontage on Broomley Road and staff is uncertain as to what requirements might be required on Broomley Road, if any. Ms. Patterson pointed out that Health Department approval had not been received as of yet. The Chairman invited applicant comment. Mr. the Ralph Feil, representing the applicant (Mr. Steve Hill), addressed Commission. He made the following comments: --The main issue is that of the upgrading of the road. --The applicant is pleased that staff is not recommending that the roads be taken into the public road system. --The parcel has had legal access over the Farmington road system (i.e. that portion that is under discussion) since 1934. --This parcel has no restriction on it as to subdivision. --Prior to the creation of the Quayle lot, the applicant negotiated with the Farmington Property Owners' Associa- tion and with the Country Club and reached agreement that Mr. Hill would subdivide the property into no more than 4 lots. In exchange for that agreement Mr. Hill agreed that he would make the resulting lots subject to the typical Farmington Subdivision restrictions. --After approval of the Quayle lot there was no inclination on the part of the parties involved that the County would suggest that existing roads would be changed in any manner whatsoever. --The roads are well maintained and very scenic. --The right-of-way over which the roads pass is approximately 60 feet wide and is owned by Farmington Country Club, but the road surfaces vary in width from 20 feet to 16 feet (for that section which the staff is recommending be upgraded). --Property owners have landscaped the shoulders of the roads (including shrubbery, fences, mailboxes, etc.). --No one, including the applicant, wants the roads changed in any way. --Money is not an issue in the debate. --Upgrading the road will cause a hardship not only to the applicant but also to the current residents of Farmington. W 19 3// M October 22, 1985 Page 3 --Private roads for this subdivision are approvable under either Section 18-36(b)(1.) of the Subdivision Ordinance or Section 18-36(c). --The upgrading to state standards of that section of road described previously by staff would require the widening of the pavement and would include cutting, filling and ditching. These improvements are not warranted in light of the impact this would have on the current residents. --Though the County Attorney is of the opinion that the requirement for these design standards cannot be waived according to Sections 18-36 (a) , 18-36 (d) (1) and 18-36 (e) (4) , Mr. Feil was of the opinion that they could be waived and cited the following section of the Subdivision Ordinance as a basis for his argument: 18-3(b)(Variations and Exceptions). --It is foolish to think any provision of an ordinance is written in such a way that it can never be waived. --Mr. Feil emphasized the phrase "except as otherwise expressly provided herein..." from Section 18-36(a) as a basis for granting a waiver. --Mr. Feil asked the Commission to read their waiver power broadly. Before opening the meeting to public comment, the Chairman explained that the private covenants and deed restrictions of Farmington are not an issue before the Commission and asked that citizens refrain from commenting on that issue. He also asked that speakers try to avoid repetition in their comments. The Chairman invited public comment. The following Farmington residents addressed the Commission and expressed their opposition to the recommended upgrading of the roads: Mr. Gerald Ferguson, Mr. Wilson Newman (representing Mr. Jack Armitage, President of the Property Owners Association), Mr. Karl -Adam Bonnier, Mrs. Elizabeth Bonnier, Ms. Elizabeth Peters , Mr. and Mrs. Wittnebel, Mr. Kenneth Lee, and Mr. Charles Patterson. Their reasons for opposition included the following: --Not benefit the Farmington property owners; --Improvements are not needed or necessary; --Detrimental effect on the community as it will create ill feelings; --Damage to existing properties; --Increased traffic; --Will divide Farmington into North and South; --Will invite increased speeds. There were also concerns about potential negative effect on already inadequate water pressure and about the adequacy of drain fields. A/ 2-� October 22, 1985 Page 4 In addition, a petition of opposition was presented by Ms. Elizabeth Peters containing 97 signatures. (A copy of that petition can be found in the Covey Hill file in the Department of Planning and Community Development.) It was determined that the Property Owners' Association was opposed both to making the roads public and to upgrading the roads to state standards even though they would remain privately maintained. Mr. J.P. Robertson addressed the Commission and stated he did not have the same view as the Property Owners' Association and he asked that the Commission base their decision on what would be required of any developer and that no special exceptions be made. He indicated he felt his view was shared by many other Farmington property owners. Mr. Frank Quayle addressed the Commission. Referring to a statement made earlier, he clarified that no additional parcels are being requested, only the 4 that were originally discussed. He also indicated he was under the impression when the property was purchased from Farmington Country Club that there was not one right-of-way, but unlimited right-of-way to the Farmington roads. (There was strong disagreement to this statement among those present.) Mr. Quayle added that he had understood that the Property Owners' Association recognized this unlimited right-of-way. He stated that the Property Owners' Association had welcomed the opportunity to limit what would happen with this parcel of land. It was also requested that no access be allowed onto Brook Road from the Covey Hill Subdivision. Dr. Charbonnier addressed the Commission and expressed his concern about access onto Brook Road. He asked that no access be allowed onto Brook Road now or at any future time. Mr. Eric Heiner, a potential purchaser of one of the four lots, addressed the Commission and asked that good judgment and common sense prevail and that the recommendation that the roads be brought up to state standards not be approved. Mr. Wilson Newman addressed the Commission once again and made reference to an agreement dated October 10, 1985, signed by the applicant, which he stated "limits the subdivision so that only those three lots, and it surrenders every other way of coming into Windsor Road." The Chairmain stated he could see no relevance to this agreement andtheissue before the Commission. Mr. Newman indicated he felt it was important in relation to future traffic generation. The Chairman stated that future development is not the current issue. He added that the Commission is well aware of the extensive tracts of land that surround Farmington, the problems that have arisen in the past and will probably arise in the future, in regard to access should those tracts ever subdivide. He said that was an important concern of the Commission. There being no further public comment, the matter was placed before the Commission. :�U :t October 22, 1985 Page 5 The Chairman invited comments from Mr. Pack, representing the County Engineer's Office. Mr. Pack stated that many of the roads in Farmington are below current standards and the County Engineer is asking that the roads be brought up to current standards and if this is not done, they are requesting that the proposal be denied. He said the problem is not just the travelway, but also the ditches leading off the roads, i.e. there is not distance between the edge of pavement to the ditch. Thus the recommendation is for widening the travelway as well as the shoulder and ditches which will require approximately a 20-foot travelway and a 4-foot shoulder on each side. He confirmed that the existing travelway is approximately 16 feet (in the section recommended for upgrading) and has no shoulder in some sections. He added there are also some sight distance problems. Mr. Pack stated he was uncertain as to whether or not any houses would be severely impacted by the recommended improvements. Mr. Pack also confirmed that the local private road standards and state design standards are essentially the same (though if it were a a public road being taken into the system, the sight distance requirement would be greater). Mr. Pack stated that although some cutting and grading would be required because of the slopes, he did not think it "would be that bad." The Chairman asked for Mr. Payne's opinion as to what the Commission could, or could not, waive in this case, and why. Mr. Payne responded as follows: "About two years ago you all were having a lot of problems with the Private Roads section of the Subdivision Ordinance, and one of the problems was that it was practically routine for developers to request some sort of variation from the terms of the ordinance. You all spent (approximately) six months discussing how you were going to handle this, and, if you recall, my admonition to you at the time was not so much that you should adopt any particular set of regulations, but that you should adopt a set of regulations which was so designed that in your experience, and in the staff's experience, and in the staff's projections of reasonable possibility, that most of the probable situations would be covered by the ordinance so that the number of times you would have to waive it would be minimum. The ordinance was comprehensively amended and it was done in several ways. One of those ways was quite consciously in Sect18-36(h), and I don't agree with Mr. Feil thatt merely a procedural section. What is says ,,, is that if you are going to waive or modify any Elm October 22, 1985 Page 6 any of the provisions of the Private Road Ordinance, (I call it that loosely --it is Section 18-36 of the Subdivision Ordinance) it can only be done in very limited instances, and basically those are three: I.e., 18-36(c) which talks about roads which otherwise wouldn't qualify to be private roads except for extraordinary circumstances --that doesn't apply here; 18-36(f) which deals with access onto a public road from a lot that also has access onto a private road; and 18-36(g) which is the circumstance where the developer doesn't have adequate right-of-way width but can build the road within the right-of-way--e.g. if the minimum requirement was for a 50-foot right-of-way but, because of the topography, he can put his 20-foot or 16-foot or whatever it is travelway and ditches and slopes, etc. within that smaller right-of-way, then he can do that. I think the record is really quite clear that the Commission made a conscious effort to reduce its discretion and to design the ordinance in such a way as to minimize the discretion which would be otherwise subject to being exercised. As I have said before, the first two sections that I have noted, i.e. subsections (c) and (f),obviously don't apply. (c) only deals with whether or not it is going to be a public road and I think everybody has conceded that it is an appropriate place to have a private road under (b)(1), therefore (c) doesn't apply. (f) doesn't apply because we're not talking about one lot and whether it should access onto an adjacent public road or not, and (g) doesn't apply because, to my knowledge, there is no issue as to the adequacy of the width of the right-of-way. That being the case, the Commission simply doesn't have the discretion to determine whether or not these standards are to be met. The Commission has developed an ordinance which you recommended to the Board of Supervisors and the Board of Supervisors approved which is applicable across the board, and it says that, in certain circumstances, if you build a private road, you will build it to standards specified in the ordinance and that, as you know, is designed according to a sliding scale depending on the number of lots served. In my judgment, you don't have the discretion simply to say, 'Well in this case we're just not going to apply this.' In my judgment, you made a conscious decision to limit your discretion with respect to construction standards for private roads which you previously had exercised under Section 18-3(b). That is the one that Mr. Feil cited to you and I think the history of it, and your recollection is probably as good as mine, is that you intentionally rejected that because it had become a major problem to you. That being the case, the issue is not whether or not this subdivision is permitted, and not whether or not it should be a public road or not, and staff has recommended that it should be a private road, and the ordinance clearly permits it to be a private road. The issue is whether or not the ordinance requires the improvement in question, and, secondly, if it does, do you have the discretion to reduce it to something less. 2 ia''' October 22, 1985 Page 7 And my answer on those questions is that it clearly does require (what) staff has recommended to you and that you do not have the authority to waive it. I think the problem is that if you do waive it in this instance, you are doing it without the benefit of a standard, and you are doing it in derrogation of your considerable time spent developing these amendments." In response to Mr. Bowerman's question, Mr. Payne confirmed that when a piece of property is sold which is not on an existing roadway, it should have easements through other parcels to connect with a road. Mr. Bowerman asked how it is decided how many people can have rights of access over that easement, i.e. is it done by deed, by the Commission, by both? Mr. Payne responded that there are two different controls at work and it can be controlled negatively (i.e. it is not controlled, it is unlimited) or it can be limited by deed, i.e. a deed of easement could easily say that the property can't be subdivided into more than a certain number of parcels. He explained that is a matter of property rights between the dominant and servient tracts. As to the county's authority to review it, that does not deal with property rights, but rather with the sovereign interests of the county in regulating, pri- marily, traffic. He stated the county does that from time to time and one of the ways it accomplishes this is to regulate the standard to which the road is to be developed. He added that, in this case, it is clear that when Farmington was originally developed the county really didn't have much to say about it. He stated that the easement, in this case, is dated around 1934, and would be controlled by its terms. He added "if this would violate the terms of that easement, that's up to the property owners to deal with that." Ms. Patterson confirmed a deeded right-of-way exists and it is 60 feet throughout its length. Mr. Cogan asked Ms. Patterson to explain where the access to the Quayle property lies. Ms. Patterson explained that the easement which is named Covey Hill Road was created with the Quayle plat to serve Mr. Quayle's lot, thus this is the access to Windsor from the Quayle lot and will also serve the proposed three lots. Ms. Patterson added that it had not been made clear in the conditions of approval what road standard will be used for Covey Hill Road, but it is intended that it also be a private road. She suggested the addition of the following condition: County Engineer specifications accordance with 09 approval of road for private road, Table I, Section plans and Covey Hill Road, in 18-36(e). October 22, 1985 Page 8 She also suggested that another condition be added as follows: No direct access onto Brook Road. (This was a condition of the Frank Quayle plat also.) Ms. Diehl stated she felt the Commission did not have much latitude in the issue since the applicant has a right to subdivide the lots and the Commission must require the improvements as described. Mr. Skove agreed and moved that the Covey Hill Preliminary Plat be approved subject to the following conditions: 1. The final plat will not be signed until the following conditions have been met: a. Issuance of an erosion control permit; b. County Engineer approval of road plans for roads from Route 250 to this entrance on Windsor Road: road to remain private but be upgraded to Virginia Department of Highways and Transportation standards; C. County Attorney approval of revised road maintenance agreements for Covey Hill Road, Farmington roads, and the 20-foot pedestrian access easement to Farmington Country Club; d. Note on plat "20-foot access easement to Farmington Country Club for pedestrians only, and no motorized vehicles; e. Health Department approval for septic sites; f. No building on slopes of 25% or greater, or septic on slopes of 20% or greater without Planning Commission approval of "modification of regulation;" g. County Engineer approval of road plans and specifications for private road, Covey Hill Road, in accordance with Table I, Section 18-36(e). h. No direct access onto Brook Road. Ms. Diehl seconded the motion. It was determined the Commission would see the final plat since Health Department approval has not been obtained. Mr. Bowerman asked Mr. Payne to comment on the latitude the Commission has in consideration of a either a preliminary or final plat, e.g. if a site plan meets the requirements of the ordinance, it basically must be approved unless there are special circumstances dealing with public safety, traffic, etc. Mr. Payne explained "the approval of a subdivision plat is an administrative act which, assuming the plat meets the requirements of the various ordinances that are applicable, is ministerial in character and the Commission has some discretion in some aspects of subdivision approval, e.g. whether or not a road is .317 October 22, 1985 Page 9 to be public or private, private roads being, in themselves, under the terms of the ordinance, the exception. If the developer satisfies you that his development, as proposed, is in accordance with the terms of the applicable ordinances, you don't have any discretion to turn it down. In order to turn it down, by statute, you are required to tell the developer in what respects the development does not comply with the applicable ordinances and outline to him those steps which he can take to rectify that and make it approv- able. You don't have the kind of discretion you do, for example, with a special use permit where you have the discretion of a legislative body." The Chairmain called for a vote on the motion for approval. The motion for approval of the Covey Hill Preliminary Plat was unanimously approved, with Commission review of the final plat. The Chairman informed the public the matter could be appealed, through a member of the Board of Supervisors, within ten days. The meeting recessed at 9:10; reconvened at 9:25. Turtle Creek Phase VI Site Plan - Proposal to locate 55 townhouse - condominium units served by 112 parking spaces. All the units are to be four bedroom townhouses. Total acreage is 5.5 acres. Zoned R-10, Residential. Located on the north side of Common- wealth Drive and the east side of Northeast Drive, between Eldercare Bardens and Jefferson Town Apartments. Tax Map 61W, Section 3, parcel 22. Charlottesville Magisterial District. It was determined this had been withdrawn at the request of the applicant. Cooke -Taylor Warehouse Site Plan - Proposal to locate two One- story buildings of 20,000 and 8,000 square feet to be utilized as warehouse space. Thirty-two parking spaces provided. Acreage of site 3.0 acres (130,680 square feet). Zoned LI, Light Industry. Property is located on the north side of Quail Road, adjacent to the Milodon building off the east side of Rt. 606. Tax Map 32, parcel 19A1. Rivanna Magisterial District. (Ms. Cooke excused herself due to a conflict of interests.) Ms. Patterson gave the staff report. She added that the applicant has received verbal approval from the Health Department. Ily October 22, 1985 Page 10 Mr. Cogan noted there was no condition relating to Fire Official approval. He stated he was under the impression that any building not served by public water was limited to 12,000 square feet. Ms. Patterson stated that if fire wall separations are used in the larger building, the Fire Official has said he will approve it and will review it along with the building permit application. Mr. Cogan said he thought the issuance of the C.O. is subject to Fire Official approval. Ms. Patterson said in this case there is nothing for the Fire Official to review other than the building permit. She added that the condition could be added if the Commission felt it was necessary. In response to Mr. Skove's question regarding condition (1)(a)-- Board of Supervisors approval of each central utility --Ms. Patterson explained that if more than two connectirns are made to the well or septic field, it becomes a central system. Mr. Skove asked if the conditions require that Quail Road be built to the ultimate standards. Ms. Patterson explained they are not required "to build the road to the ultimate road plans that are approved for the through road. We are accepting what the County Engineer has said is acceptable for their development, which is adequate width and base for that through road." Mr. Skove indicated he was concerned that a situation similar to State Farm Blvd. could develop. Mr. Payne indicated he felt that was "not as much of a problem as it might otherwise be" because the great majority of the development is in the industrial park. He felt the development here is limited by what could be developed that is not in the industrial park. The Chairman invited applicant comment. Mr. David Cooke, representing C & G Properties, addressed the Commission. He stated the applicants' only disagreement on the conditions of approval is with (1)(e)--VDH&T approval of sight distance and upgrading to 200 foot turn and 200 foot taper lane. He said there currently exists 150 feet turn and 200 feet taper with a width of 10 feet, and the applicant feels this is adequate for the current development, and the applicant should not be required to upgrade the turn and taper in anticipation of proposed use of adjacent University property. It was determined there would be some tractor -trailer usage for the proposed warehouse. There being no public comment, the matter was placed before the Commission. 3/9 October 22, 1985 Page 11 R M Ms. Diehl asked if a condition relating to Section 4.14.8 and hazardous materials should be added at this time. Ms. Patterson stated a condition could be added if so desired by the Commission, but it was her understanding that each new occupant must receive a zoning clearance and the requirement for an engineer's report could be imposed at that time. She added there are no tenants known at this time. Mr. Payne clarified that each occupant must receive a zoning clearance, not only new tenants. Mr. Bowerman recalled that this condition had been added to similar applications in the past and would "come into play" at such a time as it might be determined that hazardous materials are to be stored. Mr. Payne stated he felt Mr. Tompkins has determined that a warehouse is a use of an industrial character and the way the ordinance contemplates that it be done is for the occupant to submit his engineer's report to the extent that it is applicable. It was determined that the following condition would be added: Applicant will submit to Section 4.14.8 if deemed necessary by the Zoning Administrator. Mr. Cogan moved that the Cooke -Taylor Warehouse Site Plan be approved subject to the following conditions: 1. A building permit will not be issued until the following conditions have been met: a. Board of Supervisors approval of each central utility proposed; b. Issuance of an erosion control permit; C. County Engineer approval of grading and drainage plans and computations; d. Western entrance to be decreased to 40 feet in width, and setback at least 12.5 feet from the property line; e. Virginia Department of Highways & Transportation approval of sight distance and upgrading to 200 foot turn and 200 foot taper lane; f. County Engineer approval of road and drainage plans and computations; g. Staff approval of landscape plan; h. Recordation of septic field easement; i. Applicant will submit to Section 4.14.8 if deemed necessary by the Zoning Administrator. 2. A certificate of occupancy will not be issued until the following conditions have been met: a. County Attorney approval of road maintenance agreement; UWA October 22, 1985 Page 12 b. No vehicle shall overhang the 10 foot planting strip along Quail Run. 3. Use of the existing building on parcel 19A will be limited by the availability of parking. This is a self-imposed hardship; therefore, no variance should be granted for parking requirements; 4. Only two individual tenants total are allowed to occupy these two buildings, until connection is made to a central water and/or sewerage system. The number of tenants is determined by area requirements in Section 4.1.3 of the Zoning Ordinance. Mr. Wilkerson seconded the motion which was unanimously approved. Raintree Phase IV Final Plat - Proposal to create 32 lots with average lot size of 11.476 square feet. Proposed access from Old Brook Road, Ramblewood Place and Farm Brook Place. Acreage of site is 16.9 acres, zoned R-2, Residential. Property is located primarily on the west side of Old Brook Road (Route 652) abutting the north side of Section 2 of Raintree and the east side of Woodbrook. Tax Map 61, parcel 125 and 126. Charlottes- ville Magisterial District. Mr. Benish gave the staff report. r The Chairman invited applicant comment. Mr. Green, representing the applicant, addressed the Commission. He stated this fourth phase is almost exactly as it was at the time of the preliminary plan, as had been the case with the other three phases. There being no public comment, the matter was placed before the Commission. Ms. Diehl expressed concern about the lot with 25% slope and possible stormwater detention plans. Mr. Benish indicated everything seemed to be in order. Mr. Skove moved that the Raintree Phase IV Final Plat be approved subject to the following conditions: 1. The final plat for phase IV will not be signed until the following conditions have been met by the applicant: a. County Engineer approval of stormwater detention plans and computations; b. County Engineer approval of public road and drainage plans and computations; c. Virginia Department of Highways and Transportation approval of road and drainage plans and computations; A 1.1 October 22, 1985 Page 13 d. Issuance of soil erosion control permits; e. All street trees shall be bonded or planted , and shall be planted in conjunction with improve- ments to Rt. 652. f. Staff approval of landscape plan; g. Albemarle County Service Authority approval of sewer and water plans. h. County Attorney approval of amended Homeowners documents. Mr. Wilkerson seconded the motion which was unanimously approved. Ancona Project at Boar's Head - Mr. Keeler presented a copy of a letter written by Ms. Scala to the Zoning Administrator (copy to Mr. Ancona) which outlined the Commission's intention in regard to the road improvements for this project. Mr. Keeler explained that it had not been stated specifically in the conditions of approval that the turn lane must actually be installed before a CO could be issued, though Ms. Scala's letter to Mr. Tompkins states that that was the intent of the Commission. Mr. Keeler added that, in fact, the ordinance gives the Zoning Administrator the authority to require that as a matter of public safety and public safety matters cannot be bonded. Though the memo was undated, Mr. Keeler stated that it had been sent "today", i.e. October 22, 1985. Mr. Michel emphasized that the applicant's representative had said that "it would be done." The Commission asked staff to check to see if any of the buildings are occupied, or if any type of CO's have been issued. WPED Application - It was determined the Commissioners would pick up their materials on this application, thus they would not have to be mailed. It was also determined that the numerous letters did not need to be copied. There being no further business, the meeting adjourned at 10:10 p.m. DS 3.22 LM