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Project Profile: Route 28 Corridor Improvements

Route 28 Corridor Improvements - Northern Virginia

photo credit: Route 28 Freeway Project Group


Fairfax and Loudoun Counties, Virginia

Project Sponsor / Borrower

Phase 1 - Commonwealth of Virginia

Phase 2 - Fairfax County and Loudoun County
Program Areas

Alternative Project DeliveryProject FinanceValue Capture

Value Capture Techniques Transportation Improvement Districts



In 1987, the Virginia General Assembly gave localities the ability to create special tax districts to finance transportation improvements. The same year, property owners along the Route 28 corridor within Fairfax and Loudoun Counties agreed to form the Route 28 Transportation Improvement District, which established a special assessment on property tax - a first of its kind in the Commonwealth. The two counties enacted a special levy of $0.20 per $100 valuation on all commercial and industrial property inside the 10,204-acre district along the Route 28 corridor. Bonds were issued in 1988 to fund construction, serviced by the special district's tax revenue, and guaranteed by the Commonwealth. Phase 1, which included widening to six lanes along 14 miles of Route 28 from Route 7 in Loudoun County to I-66 in Fairfax County and the reconstruction of three major interchanges, was completed in 1991.

In 2002, Clark Construction Group and its subsidiary, Shirley Contracting Company LLC, joined in a public-private partnership (P3) with the Virginia Department of Transportation (VDOT) to replace six at-grade signalized intersections with grade-separated interchanges with ultimate plans for the construction of ten total interchanges and the widening of the 14-mile corridor to eight lanes. In 2006, following the completion of six interchanges, VDOT awarded the Clark/Shirley Team a contract to construct the four remaining interchanges, which were completed by the end of 2009.

Additionally, the Route 28 project scope includes widening Route 28 to eight lanes in certain sections (2015-2017) and constructing secondary road improvements on Centreville Road (complete), Atlantic Boulevard (under construction), Loudoun County Parkway (complete), Davis Drive (complete) and two sections of Pacific Boulevard (complete).


Phase 1 - $138.5 million

Phase 2 - $349 million
Funding Sources

Phase 1 - $138.5 million Route 28 Transportation Improvement District (1988)

  • Commonwealth Transportation Board (CTB) bonds - $138.5 million

Phase 2 Part 1 - $201.7 million Route 28 Transportation Improvement District (2003-2004)

  • CTB bonds - $75.4 million
  • Phase 1 balance - $36.3 million
  • Fairfax County Economic Development Authority - $90 million

Phase 2 Part 2 - $119.2 million (2007-2009)

  • Improvement District Revenues - $93.0 million
  • CTB - $23.96 million
  • State Transportation Opportunity Fund grant - $5 million

Phase 2 Widening - $17 million

Project Delivery / Contract Method


Private Partner

Route 28 Corridor Improvements, LLC (design-builder)

  • Clark Construction Group, Inc.
  • Shirley Contracting Company, LLC
Project Advisors / Consultants

Not available



Duration / Status

Phase 1 completed in 1991

Phase 2, Part 1 completed in 2006

Phase 2, Part 2 completed in 2009

Phase 2, Widening began October 2015 and will be completed in summer 2017

Financial Status / Financial Performance

Outstanding 1992 bonds retired in 2002

Outstanding 2003/2004 bonds retired in 2012
  • Property owners in Fairfax and Loudoun counties agreed to establish an additional property tax through the creation of a Transportation Improvement District. Selection of design-build P3 provided on-budget accelerated project delivery.
Related Links / Articles

Route 28 Project

Loudoun County Route 28 Transportation Improvement District 2

Transportation Improvement District Enabling Legislation

Route 28 Corridor Improvements LLC
Tel: (703) 668-0288


Leo Hodge
Tel: (703) 259-2930

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