Dragas Expands Grayson Commons Amid Growing Housing Demand in Chesapeake

By Eric S. Cavallo, Editor-in-Chief | Hampton Roads Construction News Network

Chesapeake’s steady population growth continues to place pressure on housing supply, transportation networks, and neighborhood compatibility. Along Elbow Road in the Greenbrier area, those competing priorities are now converging at Grayson Commons, a multi-phase residential project by The Dragas Companies that illustrates how growth in Chesapeake is increasingly shaped not by density alone, but by negotiated conditions and public accountability.

The latest milestone came in mid-2025, when Chesapeake City Council unanimously approved the rezoning of approximately 39 to 40 acres at 1504 Elbow Road—commonly referred to in city materials as the Hugo Property—authorizing up to 137 residential units. Rather than a blanket approval, the action represented a conditional expansion governed by detailed proffers addressing unit limits, site layout, public access, and long-term maintenance responsibilities.

That approval did not occur in isolation. It followed an earlier Grayson Commons entitlement granted in 2022 at the northwest corner of Elbow Road and Centerville Turnpike North. That rezoning encompassed roughly 26 acres and capped development at no more than 268 residential units, combining multifamily residential zoning with limited commercial components and a height exception tied to architectural design. Together, the two rezonings frame Grayson Commons as a coordinated residential district built incrementally through Chesapeake’s entitlement process.

The middle of the story lies in how those entitlements were structured. Chesapeake’s use of conditional rezoning played a central role in shaping the project. The approved proffers restrict development to the submitted concept plan, impose firm unit caps, and require architectural consistency through elevation controls—mechanisms designed to ensure that what is constructed mirrors what was presented during public hearings.

Transportation and public access proved to be among the most closely scrutinized issues. Residents expressed concerns about traffic along Elbow Road, a corridor already experiencing development pressure. In response, the approved conditions require dedication of a 20-foot public access easement and construction of a 10-foot-wide multi-use trail along the roadway, reinforcing the city’s emphasis on frontage improvements and alternative transportation connections as part of new residential growth.

Long-term governance was also embedded directly into the rezoning framework. The proffers mandate the creation of a property owners’ association responsible for maintaining common areas, enforcing architectural standards, and managing recreational amenities. Additional conditions addressing fencing heights and buffering were included to mitigate adjacency concerns where residential lots interface with natural features or neighboring properties.

Beyond zoning and planning, Grayson Commons also reflects the permitting realities of southeastern Chesapeake. Portions of the project area required federal review related to waters and wetlands, introducing another layer of coordination that can influence design refinement and construction sequencing. While such reviews are common in the region, they add complexity that must be navigated alongside local approvals.

From a market perspective, the project is designed to deliver housing types that remain in short supply: townhomes and flats offering lower-maintenance living while maintaining access to green space and proximity to employment centers. The project’s phased approach allows new units to enter the market gradually, aligning supply with absorption rather than overwhelming existing infrastructure.

For Dragas, Grayson Commons represents a continuation of a long-standing development philosophy rooted in neighborhood integration and regulatory discipline. Decades of experience navigating Chesapeake’s zoning framework are evident in the project’s structure, which balances housing delivery with infrastructure constraints and community expectations.

As Chesapeake continues to grow, Grayson Commons offers a clear example of how the city is managing that growth—not by avoiding development, but by shaping it through enforceable conditions, public improvements, and negotiated limits that reflect both market realities and civic priorities.

About HRCNN: The Hampton Roads Construction News Network is an independent regional publication covering construction, infrastructure, zoning, and development across Coastal Virginia, providing clear, fact-driven reporting on the decisions and projects shaping how Hampton Roads grows.

The Zoning Crossroads: How Virginia’s Growth is Testing the Boundaries of Local Power

By Earthly Infrastructure® HRCNN Staff Writer | September 2025

Zoning has long served as the gatekeeper of land use across Virginia—a mechanism through which communities shape growth, preserve identity, and define development priorities. Traditionally administered at the local level, zoning has reflected each locality’s goals, constraints, and planning philosophies.

But that autonomy is now being tested.

As the Commonwealth faces increasing pressure to expand housing access, accelerate clean energy deployment, and support high-capacity infrastructure, zoning decisions—once largely insulated from broader state policy—are drawing sharp scrutiny. Conflicts are emerging between local land use authority and statewide mandates, raising fundamental questions about how much discretion localities should retain when the stakes are regional, economic, and environmental.

Few elected officials have engaged these questions more directly than Senator Schuyler VanValkenburg, D-Henrico, one of the General Assembly’s most active voices in land use reform. Over the past two sessions, VanValkenburg has introduced legislation aimed at rebalancing Virginia’s traditional zoning structure with modern demands—from utility-scale solar siting to housing affordability and adaptive reuse of commercial property.

While many of these measures were met with resistance or tabled in committee, they represent a pivotal shift in the statewide conversation: Is local zoning authority sufficient to meet the moment?

To better understand that question, HRCNN reached out to Senator VanValkenburg’s office for comment on the growing tension between state policy goals and local land use control. His response underscores both the urgency of the issue and the complexity of navigating it within Virginia’s existing zoning framework:

“Virginia is on the precipice of an energy and housing crisis that will drastically impact the bottom line for middle and working class people. While monthly housing costs and demand have skyrocketed, our supply of available units has stagnated, pricing families out of their communities or forcing them to spend over half of their paycheck on housing alone. Likewise, the dramatic increase in data centers comes with increased energy usage and rising costs, putting a strain on our existing energy infrastructure.

There is a place for regulations and for public input in both sectors, however, restrictive local zoning ordinances and lengthy approval processes prevent us from expanding access to affordable housing and from advancing clean energy projects. We need solutions that will streamline local approval processes and reform restrictive zoning ordinances for energy and housing. Right now, we have gridlock and only those with the most connections and resources can navigate those processes successfully. The average Virginian can no longer afford to wait for localities to act.”

The Senator’s perspective reflects a broader debate now playing out across Virginia. Local governments rightly seek to protect quality of life, preserve open space, and manage growth in accordance with their comprehensive plans. But when zoning decisions—especially those involving renewable energy, infill housing, or accessory dwelling units—are used to block or delay progress, they can place the state’s environmental and economic goals at risk.

The case of solar development is particularly illustrative. Under the Virginia Clean Economy Act, the state is legally committed to achieving 100% carbon-free electricity by 2050. Yet in counties such as Pittsylvania, Page, and others, local officials have used zoning authority to deny or restrict utility-scale solar installations. While these decisions may reflect legitimate local preferences, their cumulative impact could compromise the Commonwealth’s ability to meet its statutory energy targets.

The housing conversation follows a similar pattern. Many local zoning ordinances remain anchored in low-density, single-use zoning that discourages infill development or mixed-use conversions. Proposals to legalize accessory dwelling units (ADUs), streamline subdivision approvals, or allow by-right multifamily housing in commercial corridors often face strong political resistance—even as regional housing needs go unmet.

Senator VanValkenburg’s legislative proposals have attempted to thread a difficult needle: maintaining local flexibility while introducing state-level incentives or expectations. From nonbinding housing targets to legislation permitting by-right residential use in commercially zoned areas, his approach reflects a belief that zoning reform need not eliminate local discretion—but must guide it toward broader statewide outcomes.

Opposition has been sharp. Many local officials and civic organizations view these reforms as precursors to preemption. And in a Dillon Rule state like Virginia—where localities only have powers expressly granted by the General Assembly—the conversation around zoning reform is inherently shaped by constitutional limits, statutory authority, and intergovernmental trust.

Yet the stakes are clear. Inaction has consequences. A patchwork of local policies that restrict energy generation, prevent housing diversification, or limit infrastructure growth could jeopardize Virginia’s economic competitiveness, environmental goals, and long-term resilience.

Zoning boards and planning commissions now sit at the front lines of this policy shift. Their decisions—once confined to neighborhood compatibility and traffic impacts—are increasingly influencing state-level goals tied to emissions reduction, economic development, and housing access. As those decisions grow in consequence, so too must the frameworks that support them.

Whether Virginia chooses to modernize its zoning system or preserve its existing structure, one thing is certain: zoning is no longer a background process. It is a core policy tool that will shape the future of the Commonwealth—for better or for worse.

We Want Your Voice at the Table
Are you a planner, builder, policymaker, zoning official, or advocate with insight into land use policy in Virginia? We invite you to contribute to the conversation. Submit your article for consideration at: https://earthlyinfrastructure.com/hrcnn-submit-article

About HRCNN
The Hampton Roads Construction News Network (HRCNN) is a Virginia-based policy and infrastructure media initiative powered by Earthly Infrastructure®. Our mission is to provide informed, professional coverage of land use decisions, stormwater policy, code reform, and public infrastructure challenges across the Commonwealth. HRCNN features original reporting, commentary, and interviews with civic leaders, planners, contractors, and policymakers shaping the future of Virginia’s built environment.

Legal Disclaimer
This article is intended for informational purposes only and does not constitute legal advice. Zoning authority in Virginia is governed by Virginia Code § 15.2-2280 et seq., which outlines the powers granted to localities regarding land use regulation. Readers are encouraged to consult with legal counsel or municipal officials when interpreting or applying zoning laws to specific situations. The views expressed herein do not necessarily reflect those of Earthly Infrastructure®, HRCNN, or any affiliated organizations.