Smyrna Planning Commission approves large annexation plan, denies In‑N‑Out site over design and traffic concerns

The Smyrna Municipal Planning Commission on Sept. 4 approved an annexation and planned-unit development zoning request that would allow large industrial and commercial development off Mona Road and around the I‑840 interchange, approved several site plans and zoning ordinance amendments, and denied a proposed In‑N‑Out Burger site plan because it did not meet Smyrna’s design standards and presented unresolved traffic-safety issues.

The commission’s vote cleared a request by Hillwood (the developer team represented at the meeting) to annex and zone roughly 225 acres in phases—zoning a western portion now and keeping the eastern parcels subject to future annexation—after staff and the developer outlined a utility agreement governing sewer, water, easement acquisition and cost sharing. Town Manager Dave Santucci said the utility agreement was central to the proposal’s feasibility, adding, “If you don't have sewer, you don't have a project.” The commission approved the request with staff comments and sent the package to council for final action.

Why it matters: the package would extend town services, require substantial utility and road work, and open property near I‑840 and Bill France Road to industrial, commercial and hospitality uses that the town’s 840 Gateway character area calls for. Commission discussion focused on who pays for off‑site utilities and easement acquisition, public‑safety capacity, traffic routing for heavy vehicles and long‑term tax and impact‑fee revenue estimates.

Key details from the annexation and plan of services - Developer and staff described an annexation that would place roughly 34.3 acres in C‑2 commercial zoning and about 190.95 acres in I‑2 industrial zoning, with a requested 60‑foot building height in the I‑2 area (the I‑2 limit is normally 50 feet). Staff asked that the annexation be made contiguous by adding road right‑of‑way rather than noncontiguous, to avoid complex interlocal emergency‑service agreements. - Utilities: staff and the developer described a negotiated but unsigned utility agreement with the Consolidated Utility District (CUD) and noted the town would not extend sewer beyond Rutherford County lines. Engineering estimates discussed at the meeting included roughly $30 million in water main and tank work, about $10 million for sewer mains and lift station construction, and approximately $435,000 in estimated easement acquisition costs (staff said easement acquisition timelines typically run about nine months per parcel/segment). Mark Parker, assistant utilities director, said easement‑acquisition workload would overlap other large town projects and might require outside inspection/CEI support for construction. - Public safety and roads: the developer offered land donation for a future fire station and the town estimated increased recurring costs for police and fire personnel, plus annual street‑lighting costs of about $17,000 for added lengths of roadway. Staff projected a possible $14 million estimate to upgrade narrow roads by adding shoulders if the town chose to do full upgrades rather than basic maintenance. TDOT has a separate grant to replace a substandard bridge on Pomona Road; TDOT estimates construction around 2028 and said annexation would not affect that schedule. - Fiscal estimates: the developer’s economic consultant presented a full‑build scenario (15‑year buildout) that showed annual output at full operation in the hundreds of millions and estimated roughly $700,000 annually in property tax and about $2 million annually in sales tax at full buildout; the consultant and staff emphasized these revenues would be phased in over many years.

Other planning actions and votes - Hidden Springs final plat (52 lots, 21.04 acres): commissioners approved the final plat after staff confirmed outstanding engineering comments had been addressed. Neighbor Patrick Beauchene spoke during citizens comments to thank staff and the developer for a signed agreement on shared easement and landscape buffer matters and said, “We're incredibly relieved to have reached this agreement.” The commission approved the plat.

- Retail/convenience store at Old Nash Highway and Roxasburg Road: the commission approved the site plan but declined two developer waiver requests (to reduce a required 7‑foot overlay sidewalk to 5 feet and to reduce foundation planting width). Staff asked for rear‑facade design refinements in the Union Springs overlay; the developer must update elevations and utility/landscaping details at the permit stage.

- In‑N‑Out Burger, Industrial Boulevard (former Hickory Falls site): the commission voted to deny the site plan. Staff recommended denial because the elevations as submitted did not meet Smyrna’s design‑review masonry/glazing standards and because traffic and access issues on Industrial Boulevard and Team Boulevard were unresolved. Jeff Bryant, senior development manager for In‑N‑Out, said the company had modified its typical prototype and offered additional material changes, and said the firm could raise masonry percentages; commissioners said past approvals in Smyrna have strongly followed the town’s design standards and that the corridor needs a comprehensive traffic/access study before a decision. The commission’s motion to deny passed.

- Blakeney Commons Lot 2 (fuel center and commercial): the commission approved the convenience‑store and fuel canopy site plan subject to remaining staff comments. Staff asked the applicant to adjust dumpster location and to extend the landscape buffer and privacy fence along the rear property line next to townhomes; the applicant relocated its dumpster pad during plan review.

- Subdivision regulation amendment (Section 7‑101.2 and Appendix A): the commission approved a minor text amendment and an added sample letter‑of‑credit appendix to clarify an additional approved form of surety (in addition to letter of credit or cashier’s check) and to give applicants a sample LC form.

- Zoning ordinance amendments: the commission recommended approval of two code amendments to forward to council. One change reduces the minimum detached accessory‑structure setback from 8 feet to 5 feet (aligning Smyrna with neighboring jurisdictions); another adds “tourist home” (short‑term lodging such as VRBO/Airbnb‑style homes, limited by the code definition) as an allowed use in C‑4 commercial districts. Commissioners discussed potential impacts where commercial parcels abut residential areas and noted that buffering and site‑plan review would still apply.

- Hamilton Development LLC (West Jefferson Pike / Hickory Grove Road annexation and C‑2 / I‑1 zoning): commission recommended approval consistent with prior action; staff noted the applicant proposed a greenway connection and standard plan‑of‑services items.

- Bond review actions: the commission authorized multiple routine bond reductions and extensions as staff recommended (releases and six‑month extensions where construction items remain).

What the commission asked staff to follow up on - A town‑wide pavement assessment and a targeted traffic/access study for the Industrial Boulevard/Team Boulevard/Movie Row area (staff said it expected to present a contract for that study to council in October; preliminary results could be available several months after onboarding the consultant). - Final utility easement and construction timelines and a closer look at staffing needs for easement acquisition and inspection if the Mona Road/annexation project proceeds.

Ending: the Planning Commission adjourned after routine business and directed several of the approved items to town council for final action or further review as required by ordinance.