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agricultural Allman allow application arguably authority Basic Legal Principles Bay Preservation Act Board of Supervisors Board of Zoning Carper Chesapeake Bay Preservation comprehensive plan county's density Dillon's Rule downzoning due process enabling legislation enact equal protection established Fairfax County federal governing body Henrico County historic district Historic Zones impact fee issue James City County jurisdiction land use assessment land use decisions land use regulation landowner legal non-conforming Lieu of Mandatory locality locality's Mandatory Dedication ment mobile home parks Payment in Lieu Penn Central Transportation Planned Unit Development Prince William County property owner public facilities public services referendum require residential restrict rezoning special exception specific spot zoning statute subdivision ordinance substantial Supervisors of Fairfax taking of property tion Transferable Development Rights U.S. Supreme Court valid variance vested rights Virginia Code Virginia Supreme Court zoning and subdivision Zoning Appeals zoning ordinance zoning regulations