Elsia Drive Parcels Reviewed for Residential Rezoning at Planning Commission Work Session

Two parcels of land near South Royal Avenue in Front Royal may be one step closer to changing from commercial to residential use. At a work session on Wednesday, June 4, the Front Royal Planning Commission reviewed a request from the James E. Williams Family Trust to rezone two parcels on Elsia Drive from C-1 (Community Business District) to R-3 (Residential District). The proposed change would align those parcels with a third, already residentially zoned, adjacent parcel owned by the family.

: The Town Planning Commission commences a work session on the evening of Wednesday, June 4. Royal Examiner Photo Credits: Brenden McHugh

The parcels sit near the 7-Eleven gas station and the Commonwealth Senior Living facility. According to a written statement from Stephen Williams, co-trustee of the family trust, the rezoning is intended to make all three parcels consistent in zoning. This would allow for a broader set of uses—including potentially more units for the nearby nursing facility or the construction of townhomes or apartment buildings.

During the meeting, commissioners examined how the proposal aligns with the town’s comprehensive plan and whether the requested zoning change represents the best use of the land. The discussion emphasized the fact that no development plan is being proposed alongside the rezoning application, meaning that any decision made at this stage would be focused solely on land use—not on what might ultimately be built.

Deputy Zoning Administrator John Ware presents to the commission the single item for a future public hearing on the agenda.

Deputy Zoning Administrator John Ware noted that the current commercial zoning may no longer be ideal due in part to topographical challenges and the parcels’ location off the main thoroughfare. “That may come into play here,” Ware said, suggesting the applicant’s rationale for the change may be related to the land’s limited commercial value.

Commissioner Megan Marrazzo expressed concerns about the lack of a development proposal. “So much is unknown here,” she said. While the statement from the applicant suggested uses like expanding the senior facility or building apartments, none of those possibilities are guaranteed under this application. Since no specific project is being proposed, there are also no proffers—voluntary contributions often used to offset the impact of development—being offered.

Without proffers or a site plan, commissioners are left weighing the merits of the zoning designation alone. Commissioner Teresa Fedoryka questioned whether the change is consistent with the town’s comprehensive plan, which broadly identifies the area as suited for R-1 zoning, a lower-density residential classification.

In response, Commissioner Allen Neel argued that the plan should be viewed as a general guide rather than a set of rigid boundaries. “The comprehensive plan was a vision capturing a wide swathe,” Neel said, suggesting that the language of the plan allows room for interpretation.

If the parcels are rezoned to R-3, the owners would be allowed to build single-family, two-family, or multifamily housing by right. However, certain types of development, such as apartments, would require an additional special use permit even under the new zoning.

For now, no formal action has been taken. The June 4 session was strictly a work session, meaning the matter will come before the Planning Commission again for further discussion or a vote before ultimately heading to the Town Council.

As the town continues to review zoning requests and manage future growth, the conversation surrounding the Elsia Drive parcels highlights the complexity of land-use decisions—especially when no building plans have yet been drawn.

Click here to watch the June 4, 2025 Front Royal Planning Commission Meeting.