CHAPTER THREE: LAND USE

CHAPTER THREE: LAND USE This chapter of the Plan is intended to guide land use decision making in the City. Long-range land use planning allows municipalities to guide development and redevelopment in a manner that maintains community character, protects property values, and preserves natural and environmentally sensitive features. This chapter contains a compilation of background information, goals, objectives, policies, and recommended programs to guide the future preservation and development of public and private lands in and around the City of Delavan. A. Existing and Future Land Use Map Categories LAND USE RECOMMENDATIONS SUMMARY Promote infill development and the redevelopment of key sites in the City, such as the downtown, dog track, and blighted residential areas. Promote compact neighborhoods, traditional neighborhood design, and mixed use developments. Ensure land uses are compatible with community facility, transportation, economic development and other objectives of this Plan. The Existing Land Use map (Map 4) and Future Land Use map (Map 5a), use a common set of land use categories to illustrate current and desired future land use conditions in and around the City. These categories are not the same as zoning districts. Note that not all categories listed below are shown on both maps. Agriculture and Open Space: Agricultural uses, farmsteads, and other open lands at or below a density of 1 dwelling per 35 acres. Single Family Residential (Unsewered): Single-family detached residential development served by individual on-site wastewater treatment (septic) systems. Single Family Residential (Sewered): Single-family detached residential development served by municipal sanitary sewer system. Two-Family/Townhouse Residential: Single-family and two-family residential development at densities up to eight dwelling units per acre, and small, neighborhood-scale institutional uses (e.g. church, school). Mixed Residential: Variety of residential types, particularly multifamily units with two or more dwelling units per building, and served by municipal sanitary sewer. Planned Neighborhood: Carefully planned mix of primarily single-family residential development, including two-family, mixed residential, and neighborhood commercial uses. Office Park: High-quality indoor professional offices, research and development, health care facilities and other institutional uses, and other supporting uses (e.g. day care, health club, bank). Office Parks include generous landscaping and adequate, though preferably covered, parking. Neighborhood Commercial: Smaller indoor office, service, or retail uses housed in structures compatible with the scale and architectural style of surrounding residential uses, and typically generating levels of traffic compatible with local and neighborhood streets. Community Commercial: Wide range of indoor and outdoor retail, service, office, and institutional uses outside of the downtown area. These are generally larger and/or more intensive than businesses in the Neighborhood Commercial category. Downtown: Delavan s historic downtown and other centrally located commercial areas. This designation reflects the mix of retail, service, office, and residential (usually upper story) uses and pattern of development typical of a traditional downtown as it relates to placement, scale, and style of buildings. Public Hearing Draft: September 22, 2009 45

Planned Mixed Use: Highly planned developments that incorporate a mix of residential types and any or all of the following: small retail, indoor service, office, institutional, and mixed residential land uses. Mixed use centers are intended to be vibrant urban places that should function as community gathering spots. Community Facilities: Large-scale public buildings and uses (including outdoor facilities other than parks or the airport) such as municipal institutional uses, public works, utilities, hospitals, private religious institutions, and institutional residential uses (special-care facilities, dormitories, etc.). Small institutional uses may be permitted in other land use categories. Light Industrial: Generally low-impact manufacturing, warehousing, and controlled outdoor storage uses located to efficiently and conveniently serve the Delavan area. General Industrial: More intensive indoor manufacturing, warehousing, and distribution activities than in the Light Industrial category and includes accessory uses such as offices, and outdoor storage. Uses in this category include large scale and/or intensive manufacturing, possibly significant outdoor processing or storage, warehousing, distribution, office, and associated accessory uses. Airport (Private): Air transportation and related uses. Mineral Extraction: Quarries, gravel pits, clay extraction, peat extraction, and related uses. Parks and Recreation: Existing or planned park and open space facilities devoted primarily to playgrounds, play fields, play courts, park shelters, picnic areas, and recreation trails, but may include publicly owned natural or habitat preservation areas. Large private outdoor recreation facilities such as golf courses are also included in the category. Small recreational spaces and future parks may be included in other land use designations. Conservancy: Publicly-owned lands preserved primarily for their environmental significance or sensitivity, or for flood protection and stormwater management. Such natural areas may also accommodate limited passive recreational activities such as trails, information centers, and other visitor facilities. Environmental Corridors: Continuous systems of open space that include one or more of the following natural features: wetlands, floodplains, woodlands, critical wildlife habitat, rare or endangered species, and steep slopes. Environmental corridors are intended to be preserved over the long term whether in private or public ownership through various restrictions on use and site alterations. Urban Reserve: Land where City may grow beyond the 20 year planning period, in which it is premature for the City to designate any particular type of future land use. Prior to the development of any part of the Urban Reserve in the future, the City will amend this Comprehensive Plan to identify specific future land uses (beyond agriculture) and how the specific land use pattern would be served by transportation, utility, and other public services. Public Hearing Draft: September 22, 2009 46

Map 4: Existing Land Use Public Hearing Draft: September 22, 2009 47

Public Hearing Draft: September 22, 2009 48

B. Existing Land Use Pattern An accurate depiction of the City s existing land use pattern is the first step in planning for a desired future land use pattern. Map 4 depicts the existing land use pattern within the City of Delavan. This map was prepared using data obtained from SEWRPC, Walworth County LIO, WisDNR, and updated with City staff input, site visits, and aerial photography. Figure 3.1 summarizes the existing acreage of the various land use categories within the City s 2009 corporate boundary. Figure 3.1: Existing Land Use Totals Land Use Acres* Percentage Agriculture, Open Space, and Vacant 1,403 31% Residential, Single Family (sewered and unsewered) 502 11% Residential, Attached (multi-family, etc.) 166 4% Commercial, (Neighborhood) 61 1% Commercial, (Community) 215 5% Commercial, (Downtown) 18 <1% Commercial, (Office Park) 6 <1% Planned Mixed Use (mix res. and non-res.) 33 <1% Community Facilities (Government and Institutional) 249 5% Industrial (Light) 145 3% Industrial (General) 91 2% Mineral Extraction 4 <1% Public/Private Parks Recreation 504 11% Public Conservancy 66 1% Airport (private) 47 <1% Public Right-of-Way 536 12% Surface Water 309 7% Wetlands 205 4% Woodlands 48 1% TOTAL 4,607 100% Source: GIS Inventory, Vandewalle & Associates, 2008 * Values have been rounded to the nearest whole number Agriculture Agriculture is an important land use in the City of Delavan and its planning area. A total of 1,904 acres of agricultural land is located within City limits. These agricultural areas are located in the southern and eastern most sections of the City and were annexed into the City for future development. Extensive tracts of viable agricultural land still remain outside of the City, primarily to the north, west, and southwest. Commercial Development Approximately 300 acres in Delavan are used for commercial development in its various forms, accounting for 6% of the City s land. The Downtown Commercial District is located in the western side of the City just south of Lake Comus. Neighborhood Commercial uses are clustered in pockets surrounded by residential neighborhoods. Community Commercial is largely focused at the Interstate 43 and Highway 50 interchange, and has been expanding to the east down the Highway 50 corridor. Public Hearing Draft: September 22, 2009 49

Industrial Development Industrial uses comprise 174 acres or 5.3% of the City s total area. Industrial development is concentrated along the railroad corridor, while newer industrial development is located in the Business Park in the north central section of the City. Residential Development Single family residential development comprises 841 acres, approximately 18% of the City s total land area. Within the corporate boundaries of the City, single family residential development generally radiates out east and west from the downtown area. Single family residential lands outside of the corporate boundaries whether on private sanitary sewer or public sanitary sewer were not included in this total. Two-family Residential is located primarily surrounding the community commercial zone at the Interstate 43 and Highway 50 interchange. Other pockets of two-family residential are located on the western edge of the City and neighborhoods nearest downtown. A portion of land in the Planned Mixed Use land use category is also in residential use; and the downtown commercial land use category also includes scattered residential uses. Other Land Uses Other land uses within the City comprise a total of 1,389 acres, or 32% the City s land cover. About 981 acres is classified as parks and open space, surface water, wetlands, or woodlands. Community facilities such as governmental and institutional uses account for another 213 acres (5%). Road ways and utility easements account for another 538 acres with the remaining five acres in a private airport and mineral extraction use. C. Land Development Trends Figure 3.2 shows the number of building permits issued by the City from 2003 to 2007. According to the City Building Inspector, the City issued a total of 1,088 building permits for the five year period. These were permits ranging from the construction of new residences and nonresidential buildings to building additions and renovations to garages. During this timeframe, the City issued 191 permits for the construction of new dwelling units; an average of 38 housing permits each year (See Chapter 6: Housing and Neighborhood Development for more detailed summary of housing construction). Figure 3.2: Building Permits Issued, 2003-2007 2003 2004 2005 2006 2007 TOTAL Total 219 241 205 222 201 1,088 Source: City of Delavan Building Inspection 2008 Figure 3.3 shows the number and type of new construction in the City from 2001-2007; the majority of which occurred in 2005. Construction of new commercial businesses during this time period included: 2007 NAPA Auto Parts 2006 Retail strip mall 2005 Aldi, Lowe s, Culver s, Walgreen s, and a nine-business retail strip mall 2004 Comfort Suites, Fastenal, Panera Bread, Better By Design, and a 5 business strip mall 2003 Thorpe, Chili s, and a nine-business retail strip mall 2002 Wal-Mart Super Center and Blackhawk Credit Union 2001 The Dance Factory and Kohl s Department Store Public Hearing Draft: September 22, 2009 50

New commercial construction can be used as one indicator of economic health as it is an indicator of the health and growth potential of area businesses. Between 2001 and 2007, new commercial buildings in Delavan ranged in size from 4,400 square feet (Maurice s Store) to 183,918 square feet. The average size of a new commercial building for this time period was 28,946 square feet. Larger commercial development generally bodes well for a community by producing greater sales and property tax revenue, and offering greater employment opportunities. Figure 3.3: New Construction, 2003 2007 Type 2001 2002 2003 2004 2005 2006 2007 TOTAL Residential 39 42 18 30 81 46 16 319 Commercial 2 2 3 5 5 6 1 24 Industrial 1 0 0 0 0 0 0 1 Total 42 44 21 35 86 52 17 344 Source: City of Delavan Building Inspection D. Land Market Trends The trends in the land market in the Delavan area suggest a long-term trend of increasing land values and lot prices. The average assessed value of existing owner-occupied homes in Delavan was $160,503 in 2005. Land development trends can also be measured by the increases in property values. Between 1999 and 2007, the State Department of Revenue reported an 84.5% increase in the total equalized value of all property in the City of Delavan. The data indicate that the value of development increased substantially in Walworth County, with the exception of the Town of Darien. The rapid increase in values in the sample areas may be due in part to their location near I-43, proximity to surrounding metro areas, and location within the rapidly growing southeast region of Wisconsin. Figure 3.4: Total Equalized Values 1999 2007 Percentage Change 1999-2007 City of Delavan $383,244,700 $710,442,900 85.4% Town of Delavan $484,194,800 $1,109,487,200 129.1% Town of Darien $108,408,800 $160,071,700 47.7% Village of Darien $63,872,100 $115,427,600 80.7% Village of Williams Bay $313,725,700 $743,965,400 137.1% City of Elkhorn $347,249,000 $723,341,700 108.3% City of Lake Geneva $590,590,000 $1,273,935,500 115.7% City of Whitewater* $334,750,200 $550,178,500 64.4% Source: Wisconsin Department of Revenue *Portion in Walworth County only E. Land Supply The supply of land available for development in the City includes areas that have already been planned or approved for development but not yet built-out; vacant areas within the City that have not been planned for development; developed land within the City that is appropriate for redevelopment; and land in the planning area that is not within the corporate limits of the City but is potentially available for future annexation. Public Hearing Draft: September 22, 2009 51

For vacant areas, the land available for development is determined by several factors. The area available for development is limited by environmental corridors, areas of wetlands, floodplains, public ownership, conservation easements, and other characteristics that make it undevelopable. Other potential building limitations (infiltration area, steep slopes, shallow depth to bedrock or depth to water table, hydric soils) also influence how much vacant area is appropriate for development. Building limitations will need to be measured and assessed by the developer and the City when a specific development proposal is being considered. F. Projected Land Use Demand The interaction of local and regional dynamics will continue to drive population change, household size, the balance of residential and non-residential uses, and the density of development in the Delavan area. These factors, in turn, determine the demand for land development. Wisconsin statutes require comprehensive plans to include projections, in five-year increments, for future residential, agricultural, commercial, and industrial land uses in a community over the planning period. As described in Chapter One Issues and Opportunities, for the purposes of this Plan, population change over the next twenty years will be based on a 25-Year Compounded Growth Projection. Figure 3.5 presents the projected land use demand for the City of Delavan through the year 2030. The following analysis for land use demand considers several factors: 2005 to 2030 Population Change: For the purposes of this Plan, population change over the next twenty years will be based on a 25-Year Compounded Growth Projection, described in Chapter One: Issues and Opportunities. Projected Number of New Households in 2030: The projected number of new households is based on the projected population growth divided by the projected average household size for the given 5 year increment. This Plan assumes that the household size in Delavan will decrease from 2.68 to 2.52 through 2030, mirroring state and national trends toward decreasing household size, though starting from a higher base. Projected Acreage Demand: The total number of acres required to meet new residential land use demand was calculated by dividing the projected number of new households by a residential density assumption of four units per acre. The City s current average residential density of 3.8 dwelling units per net acre was rounded up to 4 dwelling units per acre. Total New Residential and Non-Residential Area in 2030: Delavan s existing ratio of residential to nonresidential land was 51:49. Based on the assumption that this ratio represents a healthy mixture of residential to non-residential development, this ratio was used to project land demand to the year 2030. Total Road and Utility Demand: The land use projections assumes that for residential development, additional land equal to 25% of the developed acreage will be needed for roads and utilities, and for nonresidential development, additional land equal to 15% of the developed acreage will be needed for streets and utilities. Total Land Demand Area with Flexibility Factor: Because the City cannot guarantee the timing and location of new development, it is prudent to incorporate a flexibility factor into projections of land use demand to ensure that the actual supply of land appropriate for development will be available to meet expected demand. Providing a flexibility factor can also serve to keep land prices in check. In addition, providing alternative areas for growth is critical to preventing drastically uneven patterns and rates of growth that can make providing utilities and services inefficient or costly. Finally, the rationale for some flexibility in the land supply could provide a reasonable basis for negotiating adjustments to the approved Sanitary Sewer Service Area (the SEWRPC- and State-approved boundary for public water and sanitary sewer service provision, beyond which the City and sewer district is not allowed to extend municipal sanitary sewer service). Public Hearing Draft: September 22, 2009 52

Figure 3.5: Projected Land Use Demand 2005-2010 2010-2015 2015-2020 2020-2025 2025-2030 Total Projected Number of New Residents 663 716 773 845 890 3,844 Projected Household Size 2.66 2.6 2.56 2.54 2.52 Projected Number of New Housing Units 250 275 302 333 353 1,513 New Residential Acreage Demand (Based on 4 Dwelling Units Per Acre) 63 69 76 83 88 379 Flexibility Factor 2.0 2.0 2.0 2.0 2.0 Total Residential Acreage Demand 126 138 152 166 176 758 Percentage Total Land Use Demand in Residential Uses Percentage Total Land Use Demand in Non-Residential Uses 0.51 0.51 0.51 0.51 0.51 0.49 0.49 0.49 0.49 0.49 Flexibility Factor 2.0 2.0 2.0 2.0 2.0 Total Non-Residential Acreage Demand 126 136 149 163 172 746 Land for Roads & Utilities 49 55 62 66 70 302 Total Land Demand (including flexibility factor of 2.0) 301 329 363 395 418 1,806 Source: VA Land Use Projections *Non-Residential Acreage Demand includes commercial, industrial, government, and institutional uses G. Future land use The Future Land Use map (Map 5a) indicates recommended future land uses over the 20-year planning period and their location within the City. The Plan takes into consideration both the supply of developable land and projected demand. The Plan addresses areas with existing incompatible or conflicting land uses, and recommends a pattern to prevent or minimize potential new conflicts in land use. Changes in land use to implement the recommendations of this Plan will be at the request of property owners. This Plan will not compel property owners to change the use of their land. Instead, Map 5a and the policies in this chapter will guide the City in its review of development proposals as they are put forward. H. General Land Use Goal, Objectives, and Policies Goal: Promote a future land use pattern that is in harmony with the natural landscape, helps maintain property values, preserves the community s predominately residential character, encourages wellplanned and attractive development, and minimizes land use conflicts. Objectives: 1. Promote compact, mixed use development, and redevelopment to preserve open space, facilitate human interaction, advance economic growth, and advance energy efficiency. 2. Protect the City s long term growth interests during and beyond the planning period. 3. Ensure a desirable and compatible mix of land uses that are consistent with the City s character. Public Hearing Draft: September 22, 2009 53

Policies: 1. Follow the land use recommendations that are mapped and described in this Plan when reviewing new rezoning requests and making detailed land use decisions. 2. Maintain a hard edge between farmland and planned urban development areas, as opposed to permitting scattered and leap frog development patterns. 3. Require that all new development in the City connect to sanitary sewer and public water systems and limit development outside of the 2009 City limits until sewer and municipal water services are provided. In areas outside of the City limits but designated for future City growth, the City will exercise its extraterritorial authority and limit extensions of municipal sewer and water services to limit the new development to that consistent with the Agricultural and Open Space future land use category until said land is annexed or expressly allowed to develop under intergovernmental agreement. 4. Guide new development to areas adjacent to existing development and where logical extensions to streets, sewer lines, and water lines may occur. 5. Promote compact neighborhoods as a strategy to better manage the rate of community expansion, preserve farmland, and protect natural resources. 6. Disperse higher-density residential development throughout the City, rather than creating large concentrations of this type of development in a just a few areas. 7. Ensure that incompatible land uses are not located close to one another, or, where necessary, require adequate buffering between incompatible land uses. 8. Promote bicycle and pedestrian trail connections between existing and new development areas. 9. Promote traditional neighborhood design as a strategy to better manage the rate of community expansion, preserve farmland, and protect natural resources (see the Housing and Neighborhood Development chapter). 10. Encourage the development of well-planned, mixed use centers that integrate employment, shopping, housing, and recreation opportunities in a compact, pedestrian-oriented setting. 11. Use extraterritorial land division review and other techniques to direct new development, such as subdivisions, commercial development, and industrial development, to the City to preserve the distinction between City and country and the City s future growth options. 12. Encourage collaboration between the City of Delavan, Walworth County, and neighboring jurisdictions with regard to planning initiatives and development policies. 13. As necessary, prepare updates and revisions to the zoning and subdivision ordinances to reflect land use and community character goals defined in this Plan. I. Land Use Programs and Recommendations This section of the Plan has the ambitious intent of guiding land use and development in the City through the year 2030. The Future Land Use map is the centerpiece of this Plan s land use direction. This map was prepared based on an analysis of development trends, projected land demand, location and availability of vacant land in the City, location of areas logical for future development based on existing development, environmental constraints, public and property owner interests, and the City s overall vision as written in the Issues and Opportunities chapter. The Future Land Use map and related policies described below should be used as a basis to refine the City s regulatory land use tools, such as the zoning ordinance and map. They should also be used as a basis for all public and private sector development decisions, including annexations, rezonings, conditional use permits, subdivision approvals, extension of municipal utilities, and other public or private investments. Changes in Public Hearing Draft: September 22, 2009 54

land use to implement the recommendations of this Plan will generally be initiated by property owners and private developers. In other words, this Plan does not automatically compel property owners to change the use of their land. Not all land shown for development on the Future Land Use map will be immediately appropriate for rezoning and other land use approvals following adoption of this Plan. Given market and service demands, careful consideration to the amount, mix, timing, and location of development to keep it manageable and sustainable is essential. The City advocates the phased development of land that focuses growth in areas and types that advance the vision of the community and can be efficiently served with transportation, public utilities, public services, and other community facilities. Each of the future land use categories listed and shown on the Future Land Use map (Map 5a) are described below. The text under each listed land use category includes a description of what that category includes, an outline where that type of land use should be promoted, and policies related to future development in areas designated under that category. Agricultural and Open Space This future land use category indicates areas intended for agricultural uses, farmsteads, and rural housing where the cumulative development density will not exceed a density of one lot for each 35 acres of land owned. The majority of land around the periphery of the City has been mapped as Agriculture and Open Space, with the exception of some areas where residential and industrial development has already occurred. County exclusive agricultural zoning is appropriate for this land use category. 1. Exercise the City s authority to review, approve, or deny proposed land divisions within the City s extraterritorial jurisdiction to help ensure the implementation of this desired future land use category. 2. Approve land developments in this area only when clearly consistent with the category description and when proposed housing (or other non-farm use) density is not greater than one residence (or other non-farm use) per 35 acres. A maximum buildable lot size of two acres is recommended. 3. Do not extend sanitary sewer service or public water service into Agriculture and Open Space areas until and unless the City changes the future land use category for such areas through a Comprehensive Plan amendment (see the Implementation Chapter). 4. Work with the adjoining towns and Walworth County to implement these policies and programs in a cooperative manner, where possible. Single Family (Unsewered) This future land use category is intended to accommodate single-family detached residential development served by onsite wastewater treatment (septic) systems. This area is mapped in the City s extraterritorial jurisdiction only in areas where single-family residential development of this type has already occurred. The City s existing Residential Estate District (RE-5ac) may be appropriate for this land use designation, where such land use might occur in the City limits. Public Hearing Draft: September 22, 2009 55

1. Exercise the City s extraterritorial land division review authority to ensure that new Single Family Residential Unsewered development is not permitted within the City s extraterritorial jurisdiction, except in areas identified for such development on the Future Land Use map. 2. Encourage a maximum buildable lot size of two acres to minimize the amount of land that has to be used for housing. Single Family (Sewered) This future land use category is intended for single-family detached residential development served by the public water and sanitary sewer systems. As depicted in Map 5a, most developed residential neighborhoods in the City are shown in this category. The City s RS-3 and RS-5 zoning districts may be appropriate to implement this future land use category. See also the description of the Planned Neighborhood future land use category for descriptions and policies for other areas that may be used predominately for single-family housing. 1. Encourage residential development at densities of 3 to 6 homes per acre. 2. Minimize the potential for incompatible land uses (e.g. high traffic generators, noisy users, etc.) within or next to Single Family Residential Urban areas. Where such uses do occur in close proximity, encourage the use of landscaped buffers to mitigate the impacts such land uses could have on residential neighborhoods. 3. Discourage the use of cul-desacs in new neighborhoods whenever possible. 4. Encourage the construction of narrower streets in new neighborhoods, where possible, and require sidewalks along all streets. This increases the safety of neighborhoods for pedestrians and children. 5. Consider the rezoning of areas that are identified for continued Single Family Residential-Urban development on Map 5a but are currently zoned RM-8 or RM-12. These districts allow two-family dwellings by right and multiple family dwellings by conditional use. Too many conversions of singlefamily homes to higher density housing in certain blocks may significantly alter neighborhood character. 6. Plan for interconnected road and open space networks in new residential areas and between individual subdivisions. Two-Family/Townhouse Residential This future land use category is intended for two-family and attached single-family residential development (e.g. duplexes, townhomes, flats) served by sanitary sewer and water systems. Two-Family/Townhouse Residential land use areas are shown on Map 5a; primarily in locations where this type of development existed at the time this Plan was prepared. New areas of Two-Family/Townhouse Residential are mapped east of CTH O, just north of I-43 and west of Westbury Lane. Under the City s zoning ordinance, two-family homes Public Hearing Draft: September 22, 2009 56

are allowed as a conditional use in the City s RS-5 district and a permitted use in the RM-8 and RM-12 districts. 1. Encourage new housing designs and conversions which area attractive and emphasize the house from the street rather than the garage. 2. Encourage the construction of narrower streets in new neighborhoods, where possible, and require sidewalks on both sides of all streets. This increases the safety of neighborhoods for pedestrians and children. 3. Plan for interconnected road and open space networks in new residential areas and between individual subdivisions. Mixed Residential This future land use category is intended to accommodate a variety of residential uses, including multifamily apartment complexes, condominiums, townhouses, and single and two-family residences, all served by sanitary sewer and water systems. Mixed Residential is shown on Map 5a in areas of the City where this type of development existed at the time this Plan was prepared. New mixed residential development is recommended for properties between Lawson School Road and CTH X on the west side of the City, south of Geneva Street and east of Borg Road in the southeast side of the City, and between Faryl Avenue and Park Avenue. Under the City s existing zoning ordinance, multi-family housing units are allowed as a conditional use in the City s RM-8 and RM-12 zoning districts. 1. Disperse small areas of future Mixed Residential development throughout the City, rather than creating large concentrations of this type of development in a just a few areas. 2. Meet the minimum design standards for multi-family housing presented in the Housing and Neighborhood Development chapter of this Plan. 3. Require that all proposed projects submit a detailed site plan, building elevations, landscape plan, lighting plan, grading/stormwater management plan, and signage plan prior to development approval. Public Hearing Draft: September 22, 2009 57

Planned Neighborhood Planned Neighborhoods are indicated by yellow with brown polka dot pattern on Map 5a. Within each Planned Neighborhood, the City encourages a carefully planned mix of development comprised of the following future land use categories described elsewhere in this chapter: Single-Family Residential Urban (at least 65% of residential units) Two-Family/Townhouse Residential (maximum of 15% of residential units) Mixed Residential (maximum of 20% of residential units) Neighborhood Commercial Community Facility Public Park and Recreation Planned Neighborhoods are intended to provide multiple housing options while maintaining the City s existing balance of residential unit types. Planned Neighborhoods also locate essential community amenities and services within walking distance of neighborhood residents. A new combination of existing standard zoning districts (e.g., RS-5, RM- 8, RM-12, ON, etc.) would be most appropriate to implement this future land use category. 1. Encourage compact growth, provide efficient services, and minimize farmland conversion by preventing Planned Neighborhoods outside the City limits and establishing a minimum residential density of 5 dwelling units per acre for Planned Neighborhood areas following annexation. 2. Utilize natural features to act as buffers between different land uses, when necessary. 3. Encourage traditional neighborhood design principles for new neighborhood development. See detailed descriptions of this concept in the Housing and Neighborhood Development chapter. 4. Follow the policies listed above for Single-Family Residential Urban, Two-Family/Townhouse Residential, and Mixed Residential land use categories for single family, duplex, townhouse, and multi-family residential development within Planned Neighborhoods. 5. For commercial and office development in Planned Neighborhoods, follow the policies for the Neighborhood Commercial land use category below. 6. Consider developing a new unique zoning district to accommodate Planned Neighborhoods. Office Park This future land use category is intended for high-quality indoor professional offices, research and development, health care facilities, education campuses, similar institutional uses, and supporting uses (e.g. day care, health club, bank). New development will have generous landscaping, no visible outdoor storage, modest lighting, limited or uniform signage, and shared parking. Office Park Development will be organized around common open space features and an internal circulation plan, and will comply with other design standards included in the Economic Development chapter of this Plan. This future land use category is shown on Map 5a at the southeast corner of I-43/STH 50/Geneva Street interchange (the current dog track Public Hearing Draft: September 22, 2009 58

property), and in the northwest quadrant of the I-43/CTH intersection. The City s existing Office Park (OP) zoning district is most appropriate to implement this land use designation. 1. Market Office Park areas for research development and testing uses, professional offices, and health care facilities. 2. Promote site and building designs that complement and preserve natural resource. 3. When planning for future Office Park development, consider how the design of future development and internal circulation patterns could accommodate multiple transportation options (e.g. bicycle and pedestrian pathways). 4. For future support uses that may be integrated into future Office Park development (e.g. small restaurants, coffee shops, a health club, banks, etc.), follow the policies and programs for Community Commercial section identified in this chapter. Neighborhood Commercial The Neighborhood Commercial future land use category is intended for small-scale, neighborhood supporting office, retail, and service uses that preserve and blend with surrounding residential character through appropriate building sizes, building appearance, landscaping, and signage. Neighborhood Commercial areas depicted on Map 5a primarily show existing neighborhood businesses at locations where these uses will continue to be encouraged. These include a cluster near the intersection of 7 th Avenue and Geneva Street, and scattered strategically in the eastern portions of the City. New Neighborhood Commercial uses may also be considered at appropriate locations within Planned Neighborhood and Planned Mixed Use areas of Map 5a: Future Land Use. The existing Office Neighborhood (ON) and Business Neighborhood (BN) zoning district may be most appropriate to implement this future land use category. 1. Encourage neighborhood-oriented retail and service businesses in areas that will conveniently serve existing and new neighborhoods. 2. Require that all proposed commercial projects submit a detailed site plan, building elevations, lighting plan, grading/stormwater management plan, and signage plan prior to development approval. 3. In Neighborhood Commercial areas, require the use of high-quality building materials and designs that are compatible with residential areas including residential roof materials such as shingles; a generous use of windows; and exterior materials such as wood, cement board, vinyl siding, brick, decorative block, stone, and other materials approved by the Plan Commission. 4. Require calm, low-key, and attractive lighting and signage that is compatible with residential areas. Public Hearing Draft: September 22, 2009 59

Community Commercial This future land use category includes indoor retail, commercial service, office, community facilities, and controlled outdoor display land uses intended to serve the entire community. Community Commercial uses are generally larger in scale than Neighborhood Commercial uses. Within the eastern portions of the City, Community Commercial is recommended at the intersections of STH 50 and Borg Road and STH 50 and North Shore Drive. A smaller area of Community Commercial is mapped at the intersection of I-43 and CTH X. The City s Business Regional (BR) and Business Local (BL) zoning districts would be appropriate to implement this future land use category. 1. Design street and driveway access to minimize traffic congestion and safety by limiting the number of and ensuring adequate spacing between access points. 2. Promote interspersed office and community facilities in future commercial areas instead of uninterrupted areas of strip commercial development. 3. Continue to require that all proposed commercial projects submit a detailed site plan, building elevations, lighting plan, grading/stormwater management plan, landscaping plan, and signage plan prior to development approval. 4. Ensure that future Community Commercial development is adequately buffered from residential development areas. 5. Encourage the use of high-quality building materials, attractive lighting, and signage that is compatible with other areas of the City. Recommended design standards for commercial development projects are provided in the Economic Development chapter. Downtown This future land use category is intended for pedestrian-oriented commercial, office, community facility, and residential uses in a traditional downtown setting, with on-street parking and minimal building setbacks. The Downtown land use category includes the historic downtown and extends along Walworth Avenue from South Terrace Street to 7 th Street. The existing City zoning district that is most appropriate to implement this future land use category is the Business Central (BC). Public Hearing Draft: September 22, 2009 60

1. Promote the downtown as a tourist, commercial, civic, and social center. 2. Work with downtown property owners and businesses to preserve, renovate, modernize, and put to active use historically significant buildings (also see the Cultural Resources chapter). 3. Promote redevelopment and infill in and around the downtown and on other key sites. 4. Support the expansion, retention, and upgrading of specialty retail, restaurants, financial services, offices, neighborhood retail and services, and community uses. 5. Encourage new residential redevelopment nearby and on upper stories to provide a built-in market for goods and services and to increase foot traffic. Planned Mixed Use This future land use category includes a carefully designed blend of Mixed Residential, Community Facility, and Neighborhood/Community uses. Planned Mixed Use areas are intended to provide vibrant urban centers that function as community gathering spots. They are similar to Planned Neighborhoods in terms of the mix of uses allowed, but typically have a more identifiable center with somewhat increased residential densities and potentially more intensive commercial uses nearest to the designed focal points. Focal points typically include one or more of the following: urban plazas, entertainment venues, retail, office and service uses (often in mixed used use structures), and transit stops. This land use category is shown on Map 5a in the area east of I-43 and north of STH 50 up to and including the private airstrip; the former dog track property west of Lake Lawn Lodge; the area near the I-43/ CTH X interchange west of Delbrook Golf Course, and in the southwest quadrant of the I-43/Borg Road interchange. A combination of existing City zoning districts may be appropriate to implement this future land use category. 1. Develop Planned Mixed Use projects in areas of the City that would create active live-work environments through inclusion of identifiable centers of activity that can are compatible, mutually beneficial, and can be conveniently reached by a variety of transportation modes including walking. Ensure that public gathering places in the form of public commons, plazas, parks, and pedestrian ways are an integral part of the overall design for these areas. 2. Depending on the specific type of building or buildings proposed, adhere to the appropriate design guidelines expressed elsewhere in this Plan. (For example, central and/or mixed use activity centers should adhere to the design guidelines in Figures 2.1, 7.8, and 7.9. Multifamily housing, refer to the recommendations in Chapter 6, etc). 3. When considering the design for redevelopment of the former Dog Track site, include a 50-100 wide greenspace area adjacent to North Shore Drive to serve as a transition to lower intensity development to the east and south; provide space for an off-street bicycle/pedestrian trail; and serve as a highly landscaped linear park or commons for residents. Public Hearing Draft: September 22, 2009 61

Light Industrial This future land use category includes high-quality indoor manufacturing, warehousing and distribution, office, and research and development uses. This future land use category is mapped adjacent to the railroad and in the northeaster areas of the City. The existing Manufacturing Light (ML) zoning district is perhaps the most appropriate district to implement this future land use category. 1. Require that all proposed industrial projects submit a detailed site plan, building elevations, landscape plan, lighting plan, grading/stormwater management plan, and signage plan prior to development approval. 2. Oblige the use of high-quality building materials, attractive lighting, and signage that is compatible with other areas of the City. Recommended design standards for industrial development projects are included in the Economic Development chapter. 3. Encourage screened storage areas, modest lighting, limited signage, and the creation of landscaped (or tree preservation) buffers where future industrial use areas abut existing or future residential areas. 4. Market Light Industrial areas for light, indoor manufacturing and assembly, warehousing, and officerelated development. 5. Require and provide incentives for sustainable building and site design techniques, particularly progressive stormwater management using best management practices, especially for Limited Industrial areas planned near sensitive natural resources (see the Natural Resources chapter). General Industrial This future land use category is intended for indoor manufacturing, warehousing, distribution, and office uses, often with outdoor storage areas. Existing and new General Industrial development is shown on the east side of the City between I-43 and STH 11. The City s Manufacturing General (MG) zoning district is most appropriate to implement this future land use category. 1. Require that all proposed industrial projects submit a detailed site plan, building elevations, landscape plan, lighting plan, grading/stormwater management plan, and signage plan prior to development approval. Public Hearing Draft: September 22, 2009 62

2. Require and provide incentives for sustainable building and site design techniques, particularly progressive stormwater management using best management practices, for General Industrial areas planned close to sensitive natural resources. Community Facilities This future land use category includes large-scale public buildings, schools, religious institutions, power plants, substations, hospitals, and special care facilities. The locations of existing schools, churches, and public buildings have been mapped as Community Facilities. Areas mapped as residential uses on the Future Land Use map may include a Community Facilities component. The City s Institutional (I) and Institutional Residential (IR) zoning districts are most appropriate for this land use category. 1. Integrate institutional facilities into new neighborhoods and residential areas, and provide an adequate distribution of institutional facilities throughout the City. 2. Ensure that land use decisions and future growth are consistent with the community facility recommendations in the Utilities and Community Facilities chapter of this Plan. 3. Consider reserving future sites for public facilities by identifying these areas on an Official Map. 4. Amend this Plan as necessary to accommodate future utility and community facility locations. 5. Use the following standards when the City reviews institutional development projects: a. The use shall not negatively affect existing traffic flows and volumes in the surrounding neighborhood. b. The existing street system must be adequate to meet increased traffic demands. c. Nearby residential uses shall be adequately buffered from the institutional use via the use of decorative fencing, vegetative screening, berms, or similar features. d. Generally, institutional uses should not generate significant on-street parking in residential neighborhoods unless streets are specifically intended to allow such parking as in the downtown. e. The location and design should support other goals, objectives, and policies of this Plan. Airport The existing private Lake Lawn airstrip limits options for more intensive future land uses within the City s approved Sanitary Sewer Service Area east of I-43. As such it is a barrier to other Plan goals for efficient and economically advantageous extension of City services, transportation networks, and neighborhoods within the approved sanitary sewer service area. The Plan recommends eventual conversion of the Lake Lawn airstrip to uses permitted in the Planned Mixed Use category. Prior to redevelopment for other uses, the Plan recommends limiting users to light, generally non-commercial passenger aircraft and recommends against expansion any runways or other facilities (except for upgrades to existing facilities necessary to ensure public safety). Public Hearing Draft: September 22, 2009 63

1. Encourage conversion of the airstrip to uses allowed in the Planned Mixed Use land use category as depicted in Map 5a Future Land Use and/or future street as depicted in Map 6: Transportation and Community Facilities. Unless and until the airstrip property is annexed to the City and the City extends sewer and water or an adopted intergovernmental agreement expressly allows more intensive development to occur outside of the City, the City shall discourage conversion of the airstrip to uses other than those generally permitted in the Agricultural and Open Space future land use category. 2. Unless and until converted to other uses, allow the private airport to continue in its current configuration. Runway and safety improvements are permissible, provided they are only intended to increase safety for current users and nearby property owners. Extension of runways or other improvements designed to increase airport capacity, size of planes, or intensity of use will not be permitted. 3. Unless and until the air strip is discontinued, the apply the following limitations on surrounding land uses: o While the airport is in active use, the City will work with the owner to establish building height restrictions around the airstrip in accordance with FAA guidelines. o Within 500 feet of the paved airstrip surface, new structures will be limited to low intensity nonresidential uses accessory to the airstrip or other unoccupied or low occupancy uses such as storage. o Between 500 feet and 1000 feet from the nearest runway surface, only non-residential commercial, industrial, or open space use will be allowed in accordance with FAA and other accepted airport planning practice. Mineral Extraction This future land use category includes lands in current or potential future use for sand, gravel, or rock extraction. These include the operations to the northwest of the City. The City s Rural Holding (RH-35ac) zoning district may be most appropriate for areas mapped in this future land use category inside the municipal boundary. 1. Since non-metallic mining may be an appropriate short or long term use, consider the geographic extent and location of the operations and whether they are likely to impede logical future development of other types of land uses. Parks and Recreation This future land use category accommodates publicly-owned and private parks devoted at least partially to playgrounds, play fields, play courts, trails, picnic areas, and related passive and active recreational activities. This land use category has been mapped in areas of the City where these facilities existed or were planned at the time this Plan was written. The City s Park and Recreational (PR) zoning district would be most appropriate for this land use category. 1. Ensure all land use decisions for these areas consider the recommendations included in the Utilities and Community Facilities chapter of this Plan. Public Hearing Draft: September 22, 2009 64

2. Design future planned neighborhoods around and with access to environmental corridors and parks without negatively affecting the environmental health of these areas. 3. Improve bicycle and pedestrian connections between neighborhoods, parks, schools, and the downtown. 4. Update and implement the recommendations of the City s Park and Outdoor Recreation Plan. Conservancy This future land use category includes public and privately-owned conservancy lands that have been or should be preserved for their environmental significance or sensitivity, or for flood protection and stormwater management. Such Conservancy areas may also accommodate limited passive recreational activities. The City does not currently have a zoning district appropriate for this land use designation. 1. Generally prohibit new development in mapped Conservancy areas. 2. Continue to allow existing agricultural uses (cropping, grazing, or other preexisting agricultural uses) within Conservancy areas. 3. Promote public acquisition or conservation easements where the land is not presently publicly owned. Environmental Corridor This overlay future land use category includes generally continuous open space systems comprised of sensitive natural resources and/or characterized by limitations for development such as floodplains, wetlands, slopes of 12% or greater, wildlife areas, and riparian buffers. Environmental corridors are located in areas surrounding Lake Comus, Delavan Lake, and in areas to the north and west of the City. 1. Generally prohibit new development in mapped environmental corridor areas. 2. If development is proposed in areas where environmental corridors have been mapped, require developers or landowners to determine the exact boundaries of the environmental corridor based on the wetland, floodplain, steep slope, or other natural feature(s) that comprise the corridor. 3. Continue to allow existing agricultural uses (cropping, grazing, or other preexisting agricultural uses) within environmental corridors. Urban Reserve Area The Urban Reserve Area indicates relatively undeveloped long term City growth areas, but within which the City would currently not recommend or allow more intensive development. Given projected levels of growth and land use demand through 2030, and the other goals and objectives of this Plan, it is premature at this time for the City to designate any particular type of alternative future land use. The Urban Reserve Area future land use category corresponds to remaining areas of primarily agricultural and open space uses within the City s approved sanitary sewer service area in the two quarter sections of land east of CTH F between the City s sanitary sewer service area and the City of Elkhorn. 1. Policies and recommendations on permissible uses for the Urban Reserve Area shall be the same as those listed for the Agriculture and Open Space future land use category (described earlier in this section) unless and until the City s comprehensive plan is amended. 2. The City will use its extraterritorial land division review authority to ensure that residential densities do not exceed one per 35 acres. 3. Prior to allowing more intensive forms of development within the Urban Reserve Area, the City would - through the Comprehensive Plan amendment process- identify specific future land uses (other than Public Hearing Draft: September 22, 2009 65

agriculture) and how the specific land use pattern would be served by transportation, utility, and other public services. J. Smart Growth Areas for Redevelopment Smart Growth Areas are defined by the State of Wisconsin as areas that will enable the development and redevelopment of lands with existing infrastructure and municipal, state, and utility services, where practical, or that will encourage efficient development patterns that are both contiguous to existing development and at densities which will have relatively low municipal, State governmental, and utility costs. They are required to be described in comprehensive plans. In Delavan, Smart Growth Areas include sites and areas within the City that present unique opportunities for redevelopment. These include the following: Former Dog Racing Track Located in the southeast quadrant of the I-43/State Highway 50 interchange, the approximately 120-acre site is home to the defunct dog racing track. The existing structures are unsuitable for all but a few large event forms of entertainment and the cost of removing the structures for redevelopment to other purposes is a potential barrier to redevelopment of the site. The site itself offers excellent access to the City and region and is in a high visibility location, making it potentially the most valuable redevelopment site in the City. In order to maximize the economic and community defining potential of this site, this Plan recommends consideration of a full range of high value land uses including such as office, medical, or educational campus; high value commercial opportunities; civic, recreation, and other institutional uses, and a mix of residential types including multi-family and mixed commercial/residential buildings. Owing to the size of the site, this Plan also recommends consideration of a full range of complimentary uses such as highly planned mixed residential and limited commercial uses that would allow future campus users to live near the office park or campus and provide a transition to lower density residential uses to the east and south. This Plan also recommends a 50-100 green space area adjacent to the North Shore Drive right-of-way, and that a portion of the green space is used for a formal public square or commons for area residents and as the location for an off-street bicycle/pedestrian path connecting STH 50 to areas south of the property. Anne Street/7 th Street/Rail Corridor Area This area includes vacant parcels, the old Borg Indak building, several vacant lots, and some older commercial properties abutting 7 th Street. A portion of this area has already been planned for the City s future fire station. This Plan assumes that the rail corridor will remain intact for freight rail purposes. The Plan recommends uses compatible with both the freight rail and surrounding medium density residential and neighborhood commercial uses. Conversion of the old Borg Indak factory to specialized housing, condos, or apartments may be viable and compatible with planned neighborhood, historic and cultural resource preservation, and environmental goals. Public Hearing Draft: September 22, 2009 66