ADU Pass
Milford
ADU Pass helps homeowners in Milford, Caroline County, Virginia navigate the permit paperwork for building an accessory dwelling unit. This area covers 1 ZIP code.
Map
ADU details
ADU legality: allowed-with-restrictions
Net effect: Milford ADU is allowed with restrictions. Milford is an unincorporated community on US 1 in northern Caroline County; near the Mattaponi River drainage.
Cost scenarios
| Scenario | Sq ft | Permit | Build | Total |
|---|---|---|---|---|
| minimum | 200 | $1,500 | $48,000 | $56,500 |
| 600 | 600 | $1,500 | $144,000 | $152,500 |
| midpoint | 700 | $1,500 | $168,000 | $176,500 |
| maximum | 1,200 | $1,500 | $288,000 | $296,500 |
Fee breakdown (as of 2026-04)
Permitting process
- Pre-application zoning determination (~14d)
Caroline Planning & Community Development confirms zoning district, parcel size eligibility, and ADU configuration (attached / interior / detached). - VDH well-and-septic construction permit (~45d)
Three Rivers Health District; required before the building permit on parcels without public water/sewer. - Zoning permit (~14d)
Verifies ADU configuration, principal-dwelling setbacks, and any applicable RPA/RMA Chesapeake Bay Preservation Act buffer. - Building permit application (~21d)
2021 Virginia Construction Code; engineered plans; VDOT entrance permit if a new driveway is required on a state-maintained road. - Trade permits (~7d)
Electrical, plumbing, mechanical filed by Virginia DPOR-licensed contractors. - Floodplain Development Permit (if SFHA) (~14d)
Required for parcels in the Rappahannock River, Mattaponi River, or tributary corridors. - Construction inspections
Footing, foundation, framing, rough-in trades, insulation, final. - Certificate of Occupancy (~7d)
Commissioner of the Revenue notified for supplemental assessment.
Viability (permitted uses)
- Long-term rental: yes (Va. Code § 55.1-1200 et seq. (Virginia Residential Landlord and Tenant Act)) Long-term rental is permitted; statewide tenant-protection statute governs.
- Short-term rental: with-restrictions (Local STR / lodging-tax framework varies; verify with the locality) Caroline County STR posture; SUP often required in non-tourism districts.
- Office rental: with-restrictions (Local home-occupation provisions; commercial use of an ADU usually requires a separate use approval) Detached commercial rental of an ADU is generally not permitted as-of-right.
- Home office: yes (Standard home-occupation provisions in county / town ordinance) Home occupation is permitted with restrictions on signage, employees, and customer traffic.
- Studio / workshop: yes (Personal artist/music studio is a permitted accessory use in residential districts) Personal studio use is permitted accessory use.
- Agriculture: yes (Va. Code § 15.2-2288 agricultural-activity protection) Bona fide farm structures and farm-labor housing are protected and often available without SUP via Farm Building and Structure Affidavit (county-level).
- Relative support: yes (Family / multigenerational accessory dwelling is the most common ADU pattern in rural Virginia) Family / multigenerational accessory dwelling is permitted; the most common path in this rural set.
Contacts
Utilities
- Water: Private well (typical for unincorporated Caroline parcels; some Ladysmith / Carmel Church corridor parcels on community water) · 60d connect · $9,500
- Sewer: Private septic system (typical for unincorporated Caroline parcels; VDH Three Rivers Health District) · 75d connect · $13,500
- Electric: Dominion Energy Virginia (most of the county) or Rappahannock Electric Cooperative (western pockets) · 30d connect · $2,400
- Gas: Bottled propane in rural areas; Columbia Gas of Virginia in some I-95 corridor pockets · 21d connect · $2,100
Property values & taxes
Market rent by ADU size
| Sq ft | Rent |
|---|---|
| 400 | $1,050/mo |
| 600 | $1,275/mo |
| 800 | $1,500/mo |
| 900 | $1,650/mo |
Construction timeline
Realistic total: best 9mo · typical 13mo · worst 20mo
Detached new-build typical for Milford; rural contractor depth limited (most jobs go to the same handful of repeat builders within a 30-mile radius).
Modular pathway inspectors are occasional with modular
Rural mountain hollows (Buchanan) and unimproved private/coal-haul roads can preclude modular crane-set; verify access geometry early.
Financing
State ADU loans:
Insurance impact
HOA prevalence & preemption
Virginia has no HOA-ADU preemption. HOA prevalence is meaningful in Caroline (Lake Caroline, Lake Land or, Ladysmith subdivisions, Pendleton, etc.); always verify CC&Rs before pricing an ADU.
Regulatory overlays (3)
- flood-zone — Rappahannock River corridor (northern boundary), Mattaponi River corridor, tributaries (Polecat Creek, Mat River, Mill Creek) · +21d · +6% cost (map)
- wetland-overlay — Tidal Rappahannock and Mattaponi shorelines; Chesapeake Bay Preservation Act applies to county portions in Tidewater region · +21d · +4% cost (map)
- historic-district — Port Royal Historic District, Bowling Green Historic District, Rappahannock Academy area, and other National Register listings · +14d · +3% cost (map)
Technical envelope (climate & building code)
Climate & energy code
Building code
Amendments:
- Amendment
- Amendment
Legal history (timeline)
Current ordinance: Caroline County Code, Chapter 70 — Zoning, Article IV (District Regulations) and Article V (Supplementary Regulations) — accessory dwelling provisions in supplementary regulations, adopted 2018-05-15, last amended 2024-01-01
- 2007-01-01 — Va. Code § 15.2-2280 zoning authority codified (Dillon Rule baseline) (state-statute)
Virginia delegated zoning authority to counties, cities, and towns without an ADU-specific preemption.
Effect: Each Virginia locality regulates ADUs through its own zoning ordinance; ADUs are not automatically permitted statewide. - 2024-02-13 — SB 304 (2024) — proposed statewide ADU preemption (state-bill)
Passed the Virginia Senate 22-18; House sent the bill to the Virginia Housing Commission for study; not enacted.
Effect: No statewide ADU preemption is in force; local zoning controls remain authoritative.
Caroline County — county ADU rules and overlays
County ADU ordinance
Caroline County permits an 'accessory dwelling' (sometimes labeled 'accessory apartment' or 'accessory family dwelling' in older ordinance text) as a supplementary use to a single-family detached dwelling on parcels of sufficient size in the county's Agricultural (RA or A-1), Rural Preservation (RP), and primary residential (R-1, R-2) districts, subject to Article V supplementary regulations. The Caroline framework follows the common central-Virginia county pattern: one ADU per parcel; the ADU must be clearly accessory (subordinate in size and use) to a principal single-family dwelling; a base size cap typically around 800 square feet with larger caps available on qualifying rural parcels of sufficient acreage; configuration options including attached, interior-conversion, and detached; the ADU must meet the principal-dwelling setbacks for the underlying district rather than reduced accessory-structure setbacks; and the ADU cannot be subdivided off or sold separately from the principal dwelling. Short-term rental of the principal dwelling or the ADU is governed by the county's separate Short-Term Rental framework. Because Virginia has no statewide ADU preemption (see state file stateAduLaw), Caroline's ordinance is the authoritative regime on every parcel in the unincorporated county; parcels inside the Town of Bowling Green or the Town of Port Royal follow those towns' own ordinances instead.
County regulatory overlays
Caroline County administers four overlay regimes that bear materially on any ADU project: (1) the Chesapeake Bay Preservation Area (CBPA) Overlay — Caroline IS a Tidewater CBPA locality under Va. Code § 62.1-44.15:67 et seq., which is an important distinction for owners coming from inland Piedmont counties; the CBPA overlay imposes a 100-foot Resource Protection Area buffer along tidal waters, tributary streams, and adjacent wetlands, with restricted development in the RPA; (2) the Floodplain Overlay District tied to FEMA-mapped Special Flood Hazard Areas along the Rappahannock River (northern boundary with Stafford County and King George County), the Mattaponi River and its North Anna / South Anna tributaries, the Pamunkey River drainage (southern boundary with Hanover County), and interior streams; (3) Fort Walker (formerly Fort A.P. Hill) federal reservation proximity — roughly 76,000 acres of federal Army garrison land in the eastern third of the county, with associated noise / access / encroachment considerations on adjacent private parcels even though Fort Walker itself is outside county zoning reach; and (4) proximity and viewshed consideration for historic resources in the Bowling Green and Port Royal town cores plus the broader Civil War landscape of the 1863 Battle of Fredericksburg / Second Battle of Fredericksburg / Chancellorsville aftermath corridors that cross into Caroline's northern sections. Caroline has no coastal-commission jurisdiction of the kind California counties administer (CBPA is a more-limited state water-quality regime, not a comprehensive coastal-development regulator), no CalFire-equivalent WUI regime (Virginia has none), and no seismic-retrofit overlay.
County permitting (unincorporated parcels)
The Caroline County Building Official issues residential building permits for every parcel in the unincorporated county. Parcels inside the Town of Bowling Green or the Town of Port Royal route through those towns' own permitting instead. An ADU permit bundle on an unincorporated-county parcel typically includes: (1) a Zoning Compliance verification / Zoning Permit from Planning and Community Development confirming the ADU meets Article V supplementary standards (size cap, one-per-parcel, principal-dwelling setbacks, district eligibility), (2) a Building Permit from the Building Official with stamped plans, (3) trade permits for Electrical, Plumbing, and Mechanical filed by licensed Virginia contractors, (4) a Virginia Department of Health construction permit for well and/or septic on the majority of parcels (Caroline's public water/sewer footprint is limited; most rural parcels require a VDH evaluation), (5) a Floodplain Development Permit if any portion of the parcel is within a FEMA-mapped Special Flood Hazard Area per the county's Floodplain Ordinance (extensive mapping along the Rappahannock River corridor, the Mattaponi River, and the Pamunkey River drainage, plus interior streams), (6) a Chesapeake Bay Preservation Area (CBPA) site plan and Resource Protection Area delineation if the parcel is within a CBPA-designated area — Caroline IS a Tidewater CBPA locality under Va. Code § 62.1-44.15:67 et seq., which is an important distinction for owners coming from inland Piedmont counties without CBPA jurisdiction, and (7) for parcels directly adjoining or inside the Fort Walker (former Fort A.P. Hill) military reservation boundary, additional coordination with the Army garrison may apply for access, utility crossings, and encroachment concerns even though Fort Walker itself is federal land outside county zoning reach.
Virginia state — ADU law and programs
State ADU law
Virginia has NOT enacted a statewide ADU preemption law. Virginia is a Dillon Rule state — localities possess only those powers expressly granted by the General Assembly — and the statutes granting zoning authority (Va. Code § 15.2-2280 et seq.) leave ADU regulation to local ordinances. ADU permission, setbacks, parking, size, and owner-occupancy rules therefore vary by county, independent city, and town. Virginia is unique in that it has 38 independent cities that function as counties (neither in nor subordinate to the surrounding county), meaning 'the county' for any given Virginia property may be an independent city rather than a true county. Several ADU preemption bills have been introduced in recent General Assembly sessions (2022 through 2025) without enactment; none have advanced past committee as of the Assembly's 2026 regular session adjournment.
State financing programs
Virginia does not operate an ADU-specific statewide loan, grant, or forgivable-loan program. Virginia Housing (formerly the Virginia Housing Development Authority, VHDA — rebranded 2020) administers general first-time-homebuyer, down-payment-assistance (DPA), mortgage-credit-certificate, and rehabilitation products that can be applied to ADU-adjacent purchases or improvements when eligibility criteria are met, but none target ADU construction as a distinct product. The Virginia Department of Housing and Community Development (DHCD) administers federal HOME and CDBG pass-through funds that local jurisdictions can direct toward ADU-adjacent rehab, but there is no state-level ADU-dedicated line item. Federally available products (FHA 203(k), Fannie Mae HomeReady and HomeStyle Renovation, Freddie Mac CHOICERenovation) remain the primary ADU financing path for Virginia homeowners.
State housing programs
Virginia does not run a state-level pre-approved-ADU-plan catalog, statewide impact-fee-waiver statute for ADUs, or streamlined-review mandate. State-level programs that touch ADU-adjacent policy are coordinated primarily through the Department of Housing and Community Development (DHCD) and Virginia Housing, and act by funding or assisting local jurisdictions rather than by preemption. Local ADU activity — Arlington County's Accessory Dwellings program (detached ADUs permitted since 2008, liberalized 2020), Alexandria's accessory-dwelling ordinance, Fairfax County's accessory-living-unit program, and Charlottesville's 2021 zoning-code changes — is authorized under the localities' Va. Code § 15.2-2280 zoning authority, not by state mandate.
- DHCD Community Development Block Grant (CDBG) Program — Federal CDBG funds administered by DHCD to eligible non-entitlement Virginia localities for community-revitalization, housing-rehab, and infrastructure projects. Not ADU-specific. Participating localities can direct CDBG funds toward housing-rehab projects where local policy supports ADUs.
- DHCD HOME Investment Partnerships Program — Federal HOME funds administered by DHCD to Virginia participating jurisdictions and non-profits for affordable-housing acquisition, rehab, and new construction. Not ADU-specific; can be directed to ADU-adjacent rehab at local discretion.
- Virginia Housing Commission — Permanent advisory commission of the General Assembly that studies housing-policy questions and recommends legislation. Has periodically studied ADU preemption and missing-middle housing without recommending statewide enactment as of 2026-04-21.
- Local ADU ordinances under Va. Code § 15.2-2280 authority — Not a state program — listed here because Virginia ADU policy is executed entirely at the locality level under the § 15.2-2280 zoning grant. A homeowner seeking to build an ADU consults the zoning ordinance of the specific county, city, or town where the parcel is located.
Federal (United States) — ADU-relevant rules and programs
Federal ADU law
The United States has no federal statute that directly regulates accessory dwelling unit entitlement or design. Land-use authority over ADUs resides with states and local governments under the traditional police power. Federal engagement is limited to financing (Fannie/Freddie/FHA/VA/USDA), flood insurance (FEMA/NFIP), and discretionary housing programs (HUD), which are recorded in sibling sections of this file.
Federal financing programs
Federal housing-finance agencies and GSEs set nationwide underwriting rules that govern whether an ADU can be financed, appraised, and counted toward mortgage qualifying income. The relevant actors are Fannie Mae, Freddie Mac, FHA (HUD), VA, and USDA Rural Development.
Federal tax credits
There is no ADU-specific federal tax credit. ADUs may incidentally qualify for existing federal energy-efficiency and clean-energy tax credits when the ADU construction includes qualifying measures.
Federal housing programs
HUD administers several discretionary programs that can fund ADU-related activity at the grantee's election, but none is an ADU-specific program.
ZIP Code
- 22514
Post Office
- 15429 Antioch Rd, 22514