PRELIMINARY REPORT. HIGHWAY 18 CORRIDOR NEIGHBORHOOD PLAN VILLAGE OF DOUSMAN November, 2014

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1 PRELIMINARY REPORT HIGHWAY 18 CORRIDOR NEIGHBORHOOD PLAN VILLAGE OF DOUSMAN November, 2014 This preliminary report presents the initial recommendations for land use within the Highway 18 corridor along the northern boundary of the Village of Dousman for presentation at a meeting of property owners and Village officials on Wednesday, November 19, A wellattended first neighborhood plan meeting on September 24, 2014 resulted in a wide range of thoughts and proposals from property owners. Purpose of Plan The purpose of completing a neighborhood plan for the Highway 18 corridor is to provide the Village of Dousman and current and future property owners with a road map from which to guide decisions of land use, zoning, utility extensions and site design. Recent inquiries received by the Village indicate a potentially changing real estate environment from the current rural residential highway development pattern to a desire for land uses more compatible with a section of highway that carries an average of 4,400 vehicles per day (2012 traffic count). The ability of sanitary sewer and a public water supply from the Village to service new or redevelopment along the corridor presents opportunity for economic growth. In addition, more than half of the study area is comprised of natural environmental features of the Bark River floodplain, natural corridors and areas along the river and many pockets of wetlands. Economic growth and preservation of natural resources are both very important policies within the Village Comprehensive Plan. Therefore, this neighborhood planning process allows a more detailed review to carefully consider the balance of how property owners may enjoy and use their properties long into the future than afforded in the Comprehensive Plan. Most of the study area involves properties currently located within the Village of Summit. When the prior Town of Summit submitted application to the State of Wisconsin for incorporation as a Village, Summit entered into boundary agreements with all of its municipal neighbors, one of which was the Village of Dousman. Except for the Summit Meadows subdivision, all Village of Summit properties within the study area will eventually be part of the Village of Dousman as set forth by the boundary agreement. Village sanitary sewer and public water has the capacity and has been planned to serve the study area. Study Area The study area covers about 350 acres, or slightly more than one-half of a square mile. For purposes of the neighborhood plan, proposed land uses extend beyond the study area boundary so that a contiguous sub-area can be properly studied. Originally the study area was to only extend between Main Street on the east and Utica Road on the west. However, since Village utilities can be extended within the corridor west of Utica Road, the study area extends 1

2 to Gramling Lane. The length of the Highway 18 corridor between Main Street and Gramling Lane is about 6,200 feet (1.2 miles). Highway Access The Wisconsin Department of Transportation (DOT) has embarked upon a process to prepare a U.S. Highway 18 Corridor Preservation Plan. The study area extends between CTH TT and the Waukesha County line. The purpose of the study is to delay the need to implement a costly highway widening project and maintain the two-lane highway as long as possible. One aspect of maintaining current status is to eliminate or limit the amount of driveway having access to the highway. Driveways limit the effective capacity and compromise safety along the highway. Please see the attached map entitled Highway 18 Existing Access Points. The map shows the location of the 20 private driveways to Highway 18 within the study area. The map also shows the five local public street intersections with Highway 18. DOT policy regarding highway access points has been consistent over the years. Arterial public street intersections are planned to be located at one-quarter mile intervals (about 1,300 feet apart). Secondary access public street access points can be allowed between the one-quarter mile points. The separation between existing public streets is as follows: Main Street and Dousman Road east: 1,200 feet Dousman Road east and Dousman Road west: 900 feet Dousman Road west and Utica Road: 1,500 feet Utica Road and Gramling Lane: 2,600 feet The existing public street intersections are consistent with DOT policy, except for the two intersection legs of Dousman Road. A recommendation of this plan could be the elimination of one of the two legs that may require reserving land as property redevelops to allow DOT the ability to realign the remaining intersection to a 90 degree angle with the highway. Intersections at an angle of less than 90 degrees increase traffic safety hazards; private driveways not intersecting at a 90 degree angle does the same. Several of the 20 private driveways are at angles of less than 90 degrees. General DOT policy would eliminate all private driveways in the long term. However, all properties need access. Many of the private driveways were in existence before this right-ofway was a U.S. Highway and known as Sunset Avenue. DOT must understand there has to be a balance between private property rights to access and the need to control access. Therefore, this neighborhood plan proposes the location of new public street intersections within sub-areas of the neighborhoods complying with DOT separation policy. Within the subareas, internal access will be via the new public streets. When the sub-area is not large enough for a new public street, joint private drive access points are planned at appropriate locations 2

3 along the highway. In all cases, cross access between properties is encouraged so that as properties are redeveloped the number of current private driveways can be reduced. Multi-Use Trails During the first neighborhood plan meeting, several in attendance stated a need for a multi-use trail or trails to allow safe passage from the neighborhood to Dousman s downtown and the Glacial Drumlin Trail passing through the heart of the Village. Placement of trails will serve several purposes that include safety of taking walkers and bikers off public streets and encouraging more customers to visit downtown businesses. Staff of the Waukesha County Department of Parks & Land Use was contacted regarding County plans for land acquisition and trails along the Bark River. The County has a long term plan to acquire open space (floodplain, wetlands, and environmental corridor) along the Bark River as part of a greenway plan, but there are no immediate plans to acquire the properties Unlike other parts of the County, there are no plans in place for trails along the river. Just to the south of the study area, the County has acquired land along Scuppernong Creek and other natural resource land in the Scuppernong corridor. The acquisition has been through purchase by the County or dedication to the County when properties develop. County staff indicated no desire by County officials to add trails to their plan along the Bark River. They stated a local plan for trails could add an impetus to add trails to the County plans. After the preliminary land uses are presented at the November 19 th meeting, a plan for trails will be prepared. A trail plan may also be added as a component to DOT s Corridor Preservation Plan. Preliminary Land Use Plan The Village s Comprehensive Plan for the study area is fairly generic showing clusters of the same proposed land uses within sub-areas. The process of preparing recommended land uses for the entire Village did not afford the luxury to consideration of detailed land uses on nearly a parcel by parcel basis that is afforded by this neighborhood plan. Most certainly, details of a proposed street system and access points were not part of the Comprehensive Plan. Within the study area, the Comprehensive Plan recommends three major sub-areas of land uses which are as follows: Low-Density Multi-Family for both sides of the highway between Main Street and Utica Road. (up to 6 dwelling units per acre) Mixed-Use Residential for the north side of the highway between Utica Road and Gramling Lane (a combination of single family, two-family and multi-family with at a density of 26,000 square feet of land area needed per each dwelling unit). Medium-Lot Single-Family for the south side of the highway between Utica Road and Gramling Lane (lots between 15,000 and 29,999 square feet). 3

4 The west side of Main Street south of Highway 18 is the only sub-area of the neighborhood with other recommended land uses. The Comprehensive Plan shows Business at the corner and a Small-Lot Single-Family land use along the frontage of Main Street extending south toward Wilson Avenue. At the September 24 th meeting, all assembled were divided into six groups of about seven people. Each group was asked to discuss and recommend lands uses on a map of the study area by using colored pencils. The result was a myriad of recommendations ranging from the status quo to high density multi-family with a large area designated for business. The consequence of the mixed recommendations leads to the conclusion that the end result of this planning process will not please everyone, but with the hope all involved understands the interesting dynamics between the differing desires of the property owners of the area. Generally the residents of Dousman and the surrounding area, including Village officials, desire the status quo in their living environment and their surroundings. While the status quo is a likely answer, planning for the status quo is not in the best interests of the Village or the property owners. Conditions change and property owner s change and the owners have the right to request changes to a suitable land use. The Village must be prepared to appropriately respond to new proposals in an effort to balance the public good versus the rights of property owners. Therefore, the attached Preliminary Land Use Plan map presents a plan of how land use along the corridor could appear 10, 20 or 30 years from now. The plan shows three pockets for business at intersections with public streets with access from the side streets with no direct access to the highway. Other highway frontage would be populated with either Low-Density Multi-Family (maximum 6 dwelling units per acre) or High-Density Multi-Family (maximum 10 dwelling units per acre). Highway access for the proposed multi-family areas will be limited or required to provide cross access between properties for access to the side streets. The preliminary plan demands assemblage or a grouping of properties before new development could occur. Two important sub-areas of the preliminary plan are planned for conservation subdivisions. One conservation sub-area is the cluster of properties surrounded by natural resource features between Main Street and Utica Road north of the Bark River designated as Low-Density Multi- Family by the current Comprehensive Plan. The other sub-area recommended for a conservation subdivision is the west side of Utica Road next to the environment corridor surrounding Utica Lake. Both sub-areas are good candidates for conservation subdivisions because of the abundance of natural resources surrounding and within the buildable sections of the properties. The concept of a conservation subdivision means that single family lots are allowed at a reduced size to preserve natural site features, with the natural site features deed restricted as common open space. On the following page, the top example is conservation subdivision and the bottom example is a traditional subdivision design. 4

5 5

6 If the conservation subdivision concept becomes part of the final plan recommendation, the final plan will suggest density criteria to determine the allowable size and number of lots. Say for example, a hypothetical 20 acre site has six acres in floodplain and wetlands and another six acres designated as a Primary or Secondary Environmental Corridor, leaving eight acres on the site. Under a base lot size within a typical subdivision at 15,000 square feet (about 18,000 square feet per lot including streets), lot sizes in a conservation subdivision could be 8,000 to 10,000 square feet (not as small as the example on the previous page, but more appropriate for Dousman). Lot yield calculations could take into account the acreage of corridor area, but not floodplain or wetland acreage because no development can occur within floodplain or wetlands regardless of the land use. Within the study area and shown as a gray shade on the Preliminary Land Use map is the plethora of natural resources. The natural resources include floodplain, wetlands, Primary Environmental Corridors and Secondary Environmental Corridors. Very low density single family development can occur within Primary Environmental Corridors while development can occur within Secondary Environmental Corridors, but with limitations. The natural resource areas shown on the map are taken from currently available mapping available from the Federal Emergency Management Agency for floodplains and from Waukesha County maps for the other resources. When a proposal is received by the Village for new or redevelopment, the wetlands and corridors must be surveyed to confirm the boundaries. Next Steps After public review of the Preliminary Land Use Plan map and recommendations included in this report, subjects will be pursued that will aid in implementing the resultant plan. Those subjects include zoning, extension of utilities and design criteria. 6

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