A guide to preparing the land use element of a local comprehensive plan

Land Use
Resource guide

“A strong economy, a healthy environment, and

an enjoyable quality of life—all depend on the land.”
-Diamond and Noonan
2
 Land UseResource guide

A guide to preparing
the land use element of
a local comprehensive plan

“Great things are not done by impulse, but by a series of small things brought together.”
-Vincent van Gogh

June 2005

i
 Acknowledgements

Land Use Resource Guide Team

Team Members:
Primary Authors:
Anna Haines, Ph.D. (Chair), Director, Center for Land Use Education, University of
Wisconsin-Stevens Point/Extension
Kassandra Walbrun, Programming and Planning Analyst, Department of Transportation
Sarah Kemp, Associate Researcher, Applied Population Lab, University of Wisconsin-
Madison
Mark Roffers, Principal Planner, Vandewalle & Associates
Lance Gurney, Planning Director, Sauk County
Mel Erickson, Planning Director, Eau Claire County
Lynn Markham, Land Use Specialist, Center for Land Use Education, University of
Wisconsin-Stevens Point/Extension
Rebecca Roberts, Land Use Specialist, Center for Land Use Education, University of
Wisconsin-Stevens Point/Extension
Chin-Chun Tang, Project Planner, Center for Land Use Education, University of
Wisconsin-Stevens Point/Extension/Global Environmental Management Education
Center

Reviewers:
Brian Ohm, Associate Professor, University of Wisconsin-Extension & Department of
Urban & Regional Planning, University of Wisconsin-Madison
Dennis Lawrence, AICP, Executive Director, North Central Wisconsin Regional
Plannning Commission
Amy Knox, Project Manager, Southwestern Wisconsin Regional Planning Commission
Amy Emery, Principal Planner, OMNNI Associates
Douglas Miskowiak, Project Planner, Center for Land Use Education, University of
Wisconsin-Stevens Point/Extension/Global Environmental Management Education
Center

Players:
Sally Kefer, Land Use Team Leader, Wisconsin Department of Natural Resources
Kevin Pomeroy, Planning Director, 1000 Friends of Wisconsin
Erich Schmidtke, Planning Analyst, Municipal Services Team, Wisconsin Department of
Administration
George Hall, Advanced Analyst, Municipal Services Team, Wisconsin Department of
Administration
Greg Landretti, Director, Bureau of Assessment Practices, Wisconsin Department of
Revenue
Paul Benjamin, Wisconsin Department of Agriculture, Trade and Consumer Protection
Richard Bernstein, Smart Growth Coordinator, Wisconsin Historical Society
Bruce Brown, Geologist, Wisconsin Geological and Natural History Survey
ii
 David Hart, GIS Outreach Specialist, University of Wisconsin Sea Grant Institute
Thomas Larson, Director of Regulatory and Legislative Affairs ,Wisconsin Realtors
Association
Tom Wilson, Town Administrator, Town of Westport

© 2005, Center for Land Use Education, University of Wisconsin-Stevens Point/Extension

iii
iv
 Table of Contents

Wisconsin’s Comprehensive Planning Law in Brief viii

Chapter 1 – Introduction and Overview 1

Introduction 1
Purpose of the Guide 2
Land Use Trends 3
Definition and Purpose of Planning for Land Use 4
Challenges to Planning for Land Use 6

Chapter – The Land Use Element within the Comprehensive Planning

Process 9
Introduction 9
The Land Use Element: Framework and Requirements 10
Using the Land Use Element to Integrate Elements 14
Developing Consistency Between Plan Elements 14
Designing a Public Participation Plan 15

Chapter 3 – Conducting a Land Use Inventory 19

Introduction 19
Determining Current Land Use Conditions 19
Preparing a Base Map 20
Deciding on Land Use Categories 21
Collecting Current Land Use Data 22
Preparing the Current Land Use Map 22

v
Table of Contents

Chapter 4 – Land Use Analysis 25

Introduction 25
Overview of Analysis Techniques 26
Description of Eleven Analysis Techniques 26
Completing the Analysis 38

Chapter 5 – Creating Land Use Goals, Objectives, Policies and

Programs 39
Introduction 39
Defining Goals, Objectives, Policies and Programs 40
Involving the Public to Build Consensus 41
Writing Land Use Goals, Objectives, Policies and Programs 42
Integrating the Goals of Other Elements 45
Implementing Goals and Objectives 45

Chapter 6 – Land Use Alternatives or Scenarios 47

Introduction 47
Definition of Land Use Alternatives or Scenarios 48
Purpose of Creating Alternatives 48
Guiding Principles 48
Scenario Building 49
Public Involvement 49

Chapter 7 – Preparing a Future Land Use Map 59

Introduction 59
Future Land Use Map: A Definition 60
Producing a Future Land Use Map 60
Designating Smart Growth Areas 61
Examples of Future Land Use Maps 62

Chapter 8 – Implementation Tools 65

Introduction 65
Roles and Responsibilities for Plan Implementation 66
Types of Implementation Tools 67
Developing a Strategy 71
Checking for Consistency 73

Chapter 9 – Monitoring and Future Updates and Revisions 75

The Importance of Monitoring Progress 75
Techniques to Monitor Your Plan 76
Updating the Land Use Plan 76

vi
 Table of Contents

Appendix A – Land Use Planning Principles 79

Appendix B – An Example of a Land Use Element 83

Appendix C – Land-Based Classification Standards Color Codes for

Activity and Function 117

Appendix D – Land Use Resources 121

Index 123

vii
 Wisconsin’s Comprehensive Planning Law in Brief

Wisconsin’s comprehensive planning law (Wisconsin Statute Section 66.1001), passed under
the 1999 Budget Act, requires that by January 1, 2010, zoning, subdivision and official map
ordinances of a community be consistent with an adopted local comprehensive plan.

The law defines a comprehensive plan to:

• Include at least nine elements (issues and opportunities; housing; economic development;
transportation; utilities and community facilities; agricultural, natural and cultural resources;
land use; intergovernmental cooperation; and implementation)
• Include public participation throughout the planning process.
• Be adopted in whole by ordinance by the elected body.

Land Use Element (§66.1001(2)(h))

A compilation of objectives, policies, goals, maps and programs to guide the

future development and redevelopment of public and private property. The
element shall contain a listing of the amount, type, intensity, and net density
of existing uses of land in the local governmental unit, such as agricultural,
residential, commercial, industrial, and other public and private uses. The
element shall analyze trends in the supply, demand and price of land,
opportunities for redevelopment and existing and potential land-use conflicts.
The element shall contain projections, based on the background information
specified in par. (a), for 20 years, in 5-year increments, of future residential,
agricultural, commercial and industrial land uses including the assumptions
of net densities or other spatial assumptions upon which the projections are
based. The element shall also include a series of maps that shows current
land uses and future land uses that indicate productive agricultural soils,
natural limitations for building site development, floodplains, wetlands and
other environmentally sensitive lands, the boundaries of areas to which
services of public utilities and community facilities, as those terms are
used in par. (d), will be provided in the future, consistent with the timetable
described in par. (d), and the general location of future land uses by net
density or other classifications.

viii
 Chapter

Introduction and Overview

Included in this chapter:

■
■
■
■
Purpose of the Guide
Land Use Trends
Definition and Purpose of Planning for Land Use
Challenges to Planning for Land Use
1
Introduction the changes taking place are growth-related;
but some communities are losing population
When you look around at your community and businesses. Even when a community is
do you ever wonder how it came to be the growing, parts of it may experience decline.
way it is today? Do you wonder what it For example, businesses moving out to newer
will look like in twenty or fifty years? Have areas can leave downtown buildings vacant.
you noticed that some communities change
dramatically over time and some seem to stay Here are some facts to consider:
the same? Have you wondered why some • In 2000, Wisconsin was home to over
communities have lots of jobs and are good 5.36 million people.
places to live and work and some seem to • Between 1992 and 1997 about 200,000
constantly struggle? acres of land in Wisconsin were
developed.
Change is inevitable. In some communities • Over half of that land was converted from
it may not be obvious; in others, change cropland and another third came from
is occurring at a pace that many find forestland.
uncomfortable and even alarming. Many of • By the year 2030, Wisconsin will add
1
Chapter 1 – Introduction and Overview

an estimated 1 million people to its communities make their own luck. If success
population. is “preparation meeting opportunity,” then
• The construction of at least another creating a vision for one’s community and
400,000 new homes will be needed in planning a strategy to get there is the way to
Wisconsin to meet estimated population prepare for success.
growth.

While most people live in urbanized areas1, Planning should be considered as a way to
there is a growing trend to locate further prepare your community for success.
away from core urban areas to rural parts of
the state. Another trend is the construction
of second or recreational homes, particularly Communities recognize that planning for
in the north, where most of Wisconsin’s the future is sound policy. Individuals
forests and lakes are located. Many residents and businesses plan for their future to
are benefiting from this current pattern anticipate future costs among other things,
of development, but they are concerned and communities plan for their futures for
about losing their northwoods appeal and similar reasons. Haphazard development is
charm. The current rate of development has costly to local governments and taxpayers.
implications for the efficacy of agriculture An investment in planning can save money
and natural resources. The State’s economy in the future. Planning urges us to think and
relies heavily on both for food production, organize our time, resources and efforts.
paper and forest products, and tourism. These
three industries alone account for roughly
47% of the State’s economy. Purpose of the Guide
Given the trends, there are several questions This guide is intended to provide you with
to answer: basic information to help you through the
• Where will new homes be built? process of preparing the land use element of a
• Where will new residents work, shop, and comprehensive plan.
get educated and how will they get there?
• How do we balance among various land The primary audience for this guide is
use needs – farmland, natural resources, plan commissioners and other citizen
residential, commercial and industrial planners involved in the planning process.
uses? Professional planners, extension educators,
and others may also find this guide useful.
Some people will tell you that good places to
live, work and play just happen, that it is luck. This guide was developed as one of the
And there obviously is some luck involved. last in a series. The land use element of
Some places have locational advantages or the comprehensive plan is where you bring
something else that makes them special. But together ideas from other comprehensive
others agree that to a substantial degree, planning elements – housing; economic

1
Urbanized Area--An area defined by the Bureau of the Census. An urbanized area must have a total population of at least
50,000 (www.census.gov).
2
 Chapter 1 – Introduction and Overview

Other Planning Guidebooks

available at the Department of Administration
plans2 was conducted in Wisconsin in 1998.3
website: www.doa.state.wi.us/ The resulting report found that 80% of cities,
under Public Services > Comprehensive Planning 37% of villages, 35% of counties, and 18% of
towns had land use plans. The report showed
Guide to Preparing the Housing Element of a Local that the highly urbanized area of southeast
Comprehensive Plan
Wisconsin had a high percentage of local
Transportation Planning Resource Guide for Local governments that had prepared land use plans,
Comprehensive Planning averaging 80% of all local governments. This
percentage is contrasted with 45% of local
A Guide to Including Natural Resources in Local governments in northeast Wisconsin having a
Comprehensive Planning
land use plan in place.
A Guide to Cultural Resources Planning in
Wisconsin Not surprisingly, communities with a higher
population density and higher rates of growth
A Guide to Planning for Agriculture in Wisconsin focus more on planning for their future.
A Guide to Preparing the Economic Development
Communities in rural northern Wisconsin
Element of a Comprehensive Plan generally have had low population densities
and lower rates of growth than their more
A Guide to Preparing the Intergovernmental urban southern counterparts. But recently,
Cooperation Element of a Local Comprehensive especially around lakes, growth rates and
Plan
densities have increased. The two maps on
the next page (Figures 1 and 2) show 1990
development; agricultural, natural, and housing density and forecast housing density
cultural resources; utilities and community for 2010.
facilities; and transportation – and make
decisions about future land uses. The land Land use trends are changing Wisconsin’s
use element integrates and synthesizes ideas communities. Because of the amount and the
explored through these other elements and way in which land has been developed, calls
places them geographically on a future land for more improved and widespread land use
use map. planning prompted the legislature in late 1999
to pass a comprehensive planning law. The
law provided the state with its first definition
Land Use Trends of a comprehensive plan. The definition
outlines a minimum of nine elements that
In the past, many Wisconsin communities must be included in a comprehensive plan.
limited their planning efforts to an exclusive One element focuses on land use. By the
focus on land use. An inventory of land use publishing of this guide, it is estimated that

2
The definition for “land use plan” was broadly defined and included comprehensive plans, master plans, county development
plans, urban area plans, sewer service area plans, land management plans, boundary agreement plans, neighborhood plans,
redevelopment plans, land use and transportation plans, town land use plans under the state’s farmland preservation law, and
regional master plans. Not included were solid waste plans, county highway plans, park and open space plans, forestry plans,
and soil and water conservation plans.
3
Ohm, Brian, J.D. and Erich Schmidtke, J.D. 1998. “An Inventory of Land Use Plans in Wisconsin.” Extension Report 98-3,
Deptartment of Urban and Regional Planning, Univeristy of Wisconsin-Madison/Extension.
3
Chapter 1 – Introduction and Overview

Figure 1
1990 Housing Density of
Northern Counties of Wisconsin
Source: Voss, Hammer, Radeloff & Field.

Figure 2
2010 Projections for Housing Density
of Northern Counties of Wisconsin
Source: Voss, Hammer, Radeloff & Field.

about 800 communities have completed or Good land use planning can:
are currently working on plans.4 • Provide a way to make more informed
decisions;
• Coordinate individual decisions and actions
so that development decisions complement
Definition and Purpose of Planning each other rather than detract from one
another;
for Land Use • Provide facts on current conditions and
trends;
Planning is a way to improve local decisions • Assist communities in evaluating future
that affect land. Having a comprehensive development proposals in light of community
plan with a land use element makes objectives;
• Explore alternatives; and
subsequent zoning and other land use
• Provide a common framework for dealing
decisions more transparent by helping to with community change.5

4
Estimates from WisDOT’s Comprehensive Plan database and DOA information. June 2005
5
Ohm, Brian. 1999. “Guide to Community Planning in Wisconsin.” Department of Urban and Regional Planning, Univeristy of
Wisconsin-Madison/Extension.
4
 Chapter 1 – Introduction and Overview

Table 1
A Comparison between Comprehensive Plans and Land Use Plans
Comprehensive Plans Land use plans
Land use element Included as one of nine elements Typically focuses on the future
land use map and sometimes
policies for making future land use
decisions. The land use element is
the plan.
Community issues All aspects of a community are considered: Issues focused on desired future
physical as well as social, aesthetic, land uses of a community
economic, and many other factors.
Implementation Used as a guide for future zoning, housing Used primarily to guide future
and economic development policy, zoning decisions
capital improvement programming,
intergovernmental agreements, and other
implementation tools
Planning time frame 20 years into the future at a minimum Various and often difficult to
determine
Public participation Participation required by law throughout Variable
the process

illustrate the reasons why a decision was of confidence for businesses and residents to
made. By implementing a plan, decisions understand how and why decisions are made
are more credible, defendable, and fair. It that concern land use.
can decrease the level of uncertainty in
business decisions, while increasing the level There are important differences between
comprehensive plans (under the 1999
Figure 3 planning law) and land use plans (common
Land use is the hub; the plan is the wheel prior to 1999). Table 1 outlines these
differences. The major difference between
the two planning methods concerns the scope
Economic
Element

of the issues. In comprehensive planning

t on

social, economic, aesthetic and other issues

H le

en ati
ou m
E

are explored and discussed. In land use

si en

em r
E l spo
ng t

planning the physical aspects of community

a
Tr

becomes the focus of discussion.

Intergovernment
Cooperation
LAND USE Implementation
Element ELEMENT Element
Figure 3 illustrates Wisconsin’s nine elements
U
Fa til
ci iti of a comprehensive plan, with land use as the
Cultural Resources

lit es
t s ies
m un &

ie & pivotal element in the center. The elements

e n it
le t s

s C
E or u e

Ag, Nat, &

Elements

El o
em m
on the spokes often are completed prior to the
p p ss

enm
I

t
land use element, because most of the other
O

elements provide information necessary for

preparing the future land use map. Land use

5
Chapter 1 – Introduction and Overview

is a key element within the comprehensive or technical perspective and from political
plan that brings together or integrates many and organizational perspectives. This section
of the other elements of a plan. discusses several challenges, most of which
are common to a planning process.
A good land use element considers a variety
of factors including, but not limited to: TIP: Bringing diverse interests into the
land supply and demand, population and planning process is essential to building
employment projections, groundwater consensus and making your community plan
and surface water resources, and natural more meaningful.
limitations (such as steep slopes, flood plains,
and wetlands). The idea behind good land
use is to grow efficiently and in a fiscally and Choices
environmentally sound way. As communities grapple with land use
issues through a planning process, those
Part of the health of communities is a healthy involved realize that one choice may
tax base. To ensure a healthy tax base, preclude other choices. If one area of
communities have to ensure that incompatible a community is deemed appropriate for
land uses, such as residences and industrial residential development, it precludes that
uses are separated from each other through area from industrial development or farmland
other more compatible land uses that act as preservation. In Duluth, MN, for example,
buffers. Ensuring a healthy tax base may also the State DOT proposed to build a four lane
point to allowing for mixed uses (retail and highway along Lake Superior. This decision
office space mixed with residential uses) to would have effectively cut the city off from
create lively downtown areas, for example. the lake. Understanding the implications of
Finally, providing certainty about land supply that choice, local planners worked to move
is important for development; both residential the highway away from the shoreline. Now
developers and potential businesses benefit. the lakeshore is integrated into the city and
is used for a variety of activities and events.
Despite all the benefits to planning, there are Duluth had a choice between a highway
a number of challenges that communities along the shoreline or another land use -
face. The next section discusses a number of active open space. The decision to maintain
them. an open shoreline has contributed to local
quality of life and the health of the local
economy.
Challenges to Planning for Land Use
Tradeoffs
Planning for land use is both an art and a Planning for land use is the process of
science. It’s a science, because community making choices and understanding the
and citizen planners gather community data, tradeoffs from those choices from a variety
analyze it, and make proposals for how a of perspectives – fiscal, economic, aesthetic,
place could grow and change in the future. environmental, and others. By taking into
It’s an art to bring diverse interests to the account a number of perspectives, decision
table to build consensus around visions and makers and others can make better decisions
ideas that make sense from both a scientific for the health of their community.
6
 Chapter 1 – Introduction and Overview

Balancing Property Rights6 communities, where in the past, relations may

Another challenge to planning for land use have been limited or difficult.
is dealing with local reactions to what may
be perceived as undesirable land uses. An Adjacent communities may have differing
associated challenge, particularly in more goals for land uses. As a result, land uses
rural areas, is dealing with the landowner may conflict with one another at community
who believes he/she should be able to do boundaries. For example, a town may want
what he/she wants with his/her land. People’s to preserve agricultural integrity in a location
sense of their private property rights often where an adjacent city or village is planning
drives these reactions. Providing people with to grow in the future. How should these
opportunities to expand their awareness and issues be resolved? The best way for local
education of particular issues may assist in governments to work through existing and
reducing negative reactions to proposed land future land use issues is by working together
uses and regulations. In addition, getting cooperatively to identify overlapping issues
people involved in the planning process may and ways to manage conflicts in the future.
help to alleviate concerns. While not all difficulties can be avoided
or always anticipated, cooperation and
Many communities must address undesirable communication in the planning process will
land uses (such as abandoned or neglected help to ease conflicts and set the stage for
property, gravel pits or stone quarries, or working together in the future as plans are
siting of a new landfill) and the resulting implemented.
conflicts with adjacent land uses. While the
process of planning strives for compatible
One key benefit of your comprehensive plan
land uses, often the planning process must is that it will alleviate some of the difficulty of
find ways to reconcile incompatible land day-to-day land use decision-making.
uses.

Intergovernmental Issues Public Participation

Governmental boundaries between two A final challenge is encouraging public
or more communities (e.g., city and town participation in planning. The challenge is to
boundaries), that overlap each other (e.g., make public input meaningful and effective.
town with school district) or cross natural or The best ways to work through these
geographic boundaries (e.g., a watershed or challenges are:
forested areas) pose significant challenges
for most communities in Wisconsin. • to communicate and educate the public
Intergovernmental cooperation can also and local officials
include working with state and regional • to raise questions
agencies that have interest in properties and • to encourage community residents to talk
other related decision-making ability that through issues
may conflict with local goals. Challenges • to recognize that land use decisions
include coordination with neighboring represent a balance among interests and

6
For an explanation of property rights, see www.uwsp.edu/cnr/landcenter/proprights.html
7
Chapter 1 – Introduction and Overview

perspectives and physical limitations process provide the decision-making

posed by the natural environment. framework.

It is often necessary to find unique ways The next section discusses the framework and
to reach out to the public, since it can be requirements of the land use element in the
difficult for some communities to get the comprehensive plan and how to integrate the
public to participate. element within the plan.

As a community goes through a

comprehensive planning process, community
planners, plan commission members, citizen
advisory committee members and others need
to be able to:

• Explain the reasons why the community is

planning,
• Explain the benefits of the land use
element for the community,
• Educate themselves continually on both
political and environmental issues that are
raised during the process, and
• Be prepared for “nay-sayers” of the
process.

TIP: Educating local officials and the general

public about comprehensive planning and the
planning process can help overcome fears.

While there are many challenges to planning

for land use, often they can be overcome
through education, negotiation, transparency
and open communication.

Planning for land use represents a proactive

approach to managing and caring for
the future physical characteristics of a
community. Rather than reacting to growth
as it happens, a good plan allows community
officials to effectively make reasoned
decisions as changes occur. The land use
goals, objectives, policies, programs and
maps that are created through a planning
8
 Chapter

The Land Use Element

within the Comprehensive
Planning Process
Included in this chapter:
 The Land Use Element: Framework and Requirements
2
 Using the Land Use Element to Integrate Elements
 Developing Consistency Between Plan Elements
 Designing a Public Participation Plan

Introduction The land use element is often lengthy as it

serves as a centerpiece of the comprehensive
The land use element is one of nine required plan and ties together many other elements.
elements within Wisconsin’s comprehensive This chapter includes a discussion of the
planning law. The major goal in completing statutory requirements, a section on how to
this element is to create a useful tool for use the land use element to integrate other
decision makers (elected officials and plan elements, and public participation
plan commissioners) to guide growth and essential to the development of the plan.
development in their communities, for
developers as they seek planned areas to
advance projects, and for residents and others
to make known their desire for growth and
change in the future.

9
Chapter 2 – The Land Use Element within the Comprehensive Planning Process

Land Use Element (§66.1001(2)(h)) - Statutory language

A compilation of objectives, policies, goals, maps and programs to guide the future
development and redevelopment of public and private property. The element shall contain
a listing of the amount, type, intensity, and net density of existing uses of land in the local
governmental unit, such as agricultural, residential, commercial, industrial, and other public
and private uses. The element shall analyze trends in the supply, demand and price of land,
opportunities for redevelopment and existing and potential land-use conflicts. The element
shall contain projections, based on the background information specified in par. (a), for 20
years, in 5-year increments, of future residential, agricultural, commercial and industrial land
uses including the assumptions of net densities or other spatial assumptions upon which the
projections are based. The element shall also include a series of maps that shows current
land uses and future land uses that indicate productive agricultural soils, natural limitations for
building site development, floodplains, wetlands and other environmentally sensitive lands,
the boundaries of areas to which services of public utilities and community facilities, as those
terms are used in par. (d), will be provided in the future, consistent with the timetable described
in par. (d), and the general location of future land uses by net density or other classifications.

The Land Use Element: Framework TIP: Another way to think of “intensity” of
and Requirements land uses is to think of how particular parcels
of land are used - coverage, height, type, etc.
To help understand the land use element
Trends:
requirements, the statutory language is
• Analyze trends in the supply, demand and
explained below. Specific headings are
price of land.
provided to help you organize what you
need to accomplish. The statutory language
Opportunities for Redevelopment:
is written without a requirement of what to
• Analyze opportunities for redevelopment.
do first, second, third, etc. in your planning
process. Subsequent chapters include
information about the recommended steps to TIP: If your community is rural, there may
prepare this element. not be obvious areas of your community that
need redevelopment; however, there may
be vacant farmhouses, or underserved four
Explanation of the Land Use Element: corners areas that may be discussed in your
• Compile objectives, policies, goals, plan.
maps and programs to guide the future
development and redevelopment of public
Existing and Potential Land Use Conflicts:
and private property.
• Analyze existing and potential land-use
conflicts.
Current Land Uses:
• List the amount, type, intensity, and net
Projections for Future Land Uses:
density of current land uses, such as
• Provide projections, based on
agricultural, residential, commercial,
the information in the issues and
industrial, and other public and private
opportunities element, for 20 years, in
uses.
5-year increments, of future residential,

10
 Chapter 2 – The Land Use Element within the Comprehensive Planning Process

agricultural, commercial and industrial An Example Land Use Element

land uses. City of Ashland Comprehensive Plan
9 Include in projections the Table of Contents
I. Introduction
assumptions of net densities or other
II. Inventory and Analysis
spatial assumptions upon which the A. Historic development pattern
projections are based. a. Influence of natural resources
b. Influence of the railroad
Maps: c. Influence of the highways
• Provide current and future land use B. Current land use inventory
map(s) that indicate: a. Residential
i. Table with current land uses
9 Productive agricultural soils,
b. Commercial
9 Natural limitations for building site c. Industrial
development, d. Public/institutional
9 Floodplains, wetlands and other e. Utilities
environmentally sensitive lands, f. Recreation
9 Service area boundaries for public g. Vacant/open space/agriculture
utilities and community facilities h. Airport
i. Other transportation uses
(i.e. public sewer or water),
j. Perceived wetlands
9 The general location of future k. Current land use map
land uses by net density or other C. Current zoning
classifications. a. Current zoning districts map
D. Existing and potential land use conflicts
An example outline for a land use element E. Limitations for future development
is provided in the box on the right. The F. Land supply and demand
G. Development and redevelopment opportunities
example shows how the City of Ashland
a. Public input on land use issues
structured its element. Your community III. Vision
should develop a land use element tailored IV. Goals, Objectives, Policies and Programs
to fit local needs. V. Land Use Plan
A. Overview of future land uses
a. Residential
It is important for your community to complete b. Commercial
the minimum statutory requirements of the c. Industry
land use element (§66.1001(2)(h)). d. Planned waterfront
e. Public/institutional
f. Agriculture
Additional information, analyses, and maps g. Parks/recreation
that apply to your specific community’s h. Bay City Creek and waterfront overlay
needs and issues can also be included in the i. Land use plan map (future land uses)
element. For example, your community B. Staged growth
a. Residential staged growth
may wish to list and identify in the current
b. Commercial staged growth
land use map all the land in public forest c. Industrial staged growth
or under government ownership. In d. Institutional staged growth
another example, your community, after e. Staged growth map
its discussion of goals, objectives, policies C. Required zoning changes
D. Sustainability
11
Chapter 2 – The Land Use Element within the Comprehensive Planning Process

This chart outlines suggested steps to complete the land use element. The following chapters
will go into more detail.

12
Chapter 2 – The Land Use Element within the Comprehensive Planning Process

13
Chapter 2 – The Land Use Element within the Comprehensive Planning Process

and programs may decide to include areas Review Figure 3 on page 5 to see the
for mixed-use development (e.g., residential relationship between land use and the other
mixed with business) in its future land use elements. If the housing element discusses
map. There is no right or wrong way to the need to provide affordable housing near a
include added information above and beyond downtown location, this objective would need
the statutory requirements. to be integrated into the land use element so
that current and future affordable housing
areas can be mapped, and other policy
Using the Land Use Element to considerations, such as density and mixed
Integrate Elements uses can be thought about within the context
of related elements, such as transportation.
The land use element is one of nine elements In contrast, if the housing element discusses
specified within the comprehensive planning the need to provide financial mechanisms
law. In terms of the process for preparing a to promote affordable housing, this goal/
comprehensive plan, the land use element is objective does not need to be integrated into
discussed throughout the planning process the land use element.
and may be in preparation throughout the
process.
Developing Consistency Between
Plan Elements
All the other elements affect the land use
element.
Another critical feature necessary to the
comprehensive plan is consistency between
There is good reason to discuss land use and among elements, particularly their goals
throughout the planning process. The land and objectives. Because land use serves
use element uses data gathered from the other as an integrating element, it is important to
elements, such as population and housing understand the goals, objectives, policies
projections, commercial and industrial trends, and programs that have been identified in
amount and health of agriculture and natural other elements, particularly if they address
resources, and quality of cultural resources. the physical development of the community.
The land use element also incorporates Consistency is broader than considering
analysis and interpretation of data from other relationships between elements. It can also
elements and public discussion to understand include:
the amounts and types of development that • Consistency with other existing plans
are possible or desired within the community. – During the inventory stage, identify
The land use element places various uses – and review as many existing plans as
such as residential, commercial, and open possible. Summarize the major goals and
space – on at least two types of maps, the objectives of the plans, incorporating
current and future land use maps. those that are still agreed upon into
the element. Alternately, use the goals
Because the land use element is critical to and objectives as a guide to ensure that
other elements of the comprehensive plan, new ones do not contradict pre-existing
integration between elements is essential. plans, such as open space plans, outdoor

14
 Chapter 2 – The Land Use Element within the Comprehensive Planning Process

recreation plans, and sewer service need to accomplish a task?” The answer
plans, or recommend amending those may include public participation when the
plans so they are consistent with the planning group, committee, or planner needs
comprehensive plan. the following:
• Consistency within each element – The • Public Opinion: More information
goals, objectives, policies and programs about citizen’s values, desires, or beliefs,
within the land use element should not will ensure that planning products and
conflict with one another. If conflicting decisions are representative of citizen
goals are identified, revise the goals and interests.
objectives until satisfied, based on mutual • Public Expertise: More credible, locally
agreements among the stakeholders realistic solutions may be reached
involved in this stage. verifying or supplementing factual
• Consistency between elements – information with citizen expertise and
Crosscheck if the goals and objectives in experiences.
the land use element contradict with those • Public Acceptance/Influence: Acceptance
in other elements. of decisions may be gained by allowing
citizens to participate or directly influence
decision-making.
Designing a Public Participation
Plan Five Categories of Involvement
Identifying what is needed from citizens,
In the planning law, Wisconsin Statutes whether it is their opinions, expertise,
section §66.1001(4)(a) public participation or acceptance, helps the planner decide
is the focus. Local government units must how to involve them in planning. Citizen
adopt written procedures that are designed involvement is often classified into five
to foster public participation in every stage categories: Awareness, Education, Input,
of the planning process. Presumably once a Interaction, and Partnership. When public
community gets to the land use element of opinion is needed, planners will use input
the planning process, the public participation methods. If expertise is required, then
plan has been articulated and various citizens are best involved through interaction
techniques have been used throughout the methods. If citizen influence is required to
process. gain public acceptance, then the public can be
directly involved in decision-making through
partnerships. Whereas input, interaction,
Each community needs to develop a public and partnerships use citizens to directly
participation plan as part of the requirements
accomplish tasks, awareness and education
of law. (s. 66.1001 (4a), Wis. Stats.)
do not. Rather, they work to create an
opportunity for more effective involvement
Choosing Appropriate Public Involvement by building the capacity of citizens to
Techniques participate.
A thorough plan process not only illustrates
what must be accomplished and when, but 1. Awareness: Awareness approaches are
also prompts the question, “What do we used to publicize upcoming participation

15
Chapter 2 – The Land Use Element within the Comprehensive Planning Process

events or decisions already made. related materials such as background

Awareness techniques are always needed information, maps, plan goals, survey
for successful citizen involvement. information, etc. Typically this would
Citizens cannot be involved if they be placed in the town, village or city
don’t know about an event or how to hall, the local public library, and other
participate. Effective awareness tools not locations to inform the general public
only state the ‘when,’ ‘where,’ and ‘what’ that a plan process is underway and
of the event, but also stimulate interest. how to get involved.

Example Awareness Tools 2. Education: Educational approaches

• Public notice: the minimum legal provide citizens with balanced and
requirement necessary to advertise objective information. Education is used
opportunities for public participation. to build a citizen’s capacity to become
Notice is usually posted in public more involved and help planners achieve
places and newspapers. specific tasks. Education should be used
• Direct Mail: mass mailing of letters, before citizens participate in decision-
brochures, or other promotional pieces making. Untrained citizens will feel
to increase awareness or advertise a uncomfortable participating, or may wed
particular event. Little individual time themselves to decisions made from poor
commitment is necessary, but method information, or worse, speculation.
is cost prohibitive as a general publicity
tool. It works well to target specific Example Education Tools
groups. • Newsletter: local and regular source
• Mass media: the use of radio, of information that is used to keep the
television, newspapers, local public informed and educated about the
publications, and other media sources stages of the planning project.
to disseminate information. Used to • Open house: a semi-informal setting
keep the planning project in the public in which technical experts and displays
eye and inform the public regarding are used to inform the public about
developments and decisions in the the planning effort. Also serves as
planning process. Able to reach a large an opportunity for the public to ask
number of people, but may suffer from questions, express concerns and
editing or bad coverage. provide feedback about proposals on a
• Web page: the use of the web to one-to-one basis.
disseminate information, conduct
surveys, and visualize aspects of a 3. Input: Public input provides a means
community, has become a growing for decision-makers to learn more
trend as a public participation tool. It about public sentiments and capture
is largely passive with users receiving citizen values. Decision-makers gather
and downloading information, but information from public input before
can be made far more interactive with moving on to accomplish tasks that fit
online surveys or discussion boards. their desires, values, or beliefs.
• Planning Kiosk: a display of planning

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 Chapter 2 – The Land Use Element within the Comprehensive Planning Process

Example Input Tools including brainstorming, small group

• Survey: used to systematically collect discussions and a variety of group
data or viewpoints from many people. process techniques. Presenters, panels,
Sample must be chosen carefully to videos, maps, models and other visual
represent appropriate population. or active devices may also be used to
Questions should be simple, jargon-free stimulate discussion.
and brief. Mail and phone are typical • Citizen Commission: Citizen
ways of conducting surveys, but the committee designed to make decisions
internet is quickly becoming another regarding community planning.
method for collecting attitudinal data Provides recommendations to the
for a planning process. governing body for final decision.
• Visual Preference Survey: A tool to
gauge citizen preference of various Chapter 3 discusses how to conduct a land
visual alternatives. Best used for site- use inventory. The chapter reviews steps in
specific applications, such as building taking stock of current conditions such as
selections for a subdivision or building collecting data and drafting a land use map
project. of existing conditions. While it is one of the
most basic steps in the process of developing
4. Interaction: Community planners the land use element, it is essential for your
sometimes cannot gather enough community in order to plan for the future.
information to make an informed
decision. Interaction tools provide an
opportunity to exchange information and
expertise openly between planners and
citizens.

5. Partnerships: The public may demand

more influence over decision-making.
Planners invite citizens to collaboratively
make decisions. Interaction and
partnerships often go hand in hand to
make decision-making more thoughtful
and build rapport among citizens and
planners. The result is citizen ownership
and acceptance of planning decisions or
products.

Example Interaction or Partnership

Tools
• Workshop: interactive meeting where
a facilitator stimulates the flow of
creative ideas among participants.
Multiple methods may be used

17
18
 Chapter

Conducting a Land Use

Inventory
Included in this chapter:




Determining Current Land Use Conditions
Preparing a Base Map
Deciding on Land Use Categories
Collecting Current Land Use Data
3
 Preparing the Current Land Use Map

Introduction Determining Current Land Use

Conditions
What is a land use inventory and what role
does it play in comprehensive planning? No community is a blank slate. A
comprehensive plan requires an
A land use inventory is a database of the understanding of current conditions as
lands and their uses within your community well as the community’s place within the
including both developed and undeveloped larger regional setting. Moreover, the goals
land. and policies of a comprehensive plan are
greatly affected by current land uses and
An evaluation of current land use conditions development patterns that may be more or
is necessary in preparing the land use less resistant to change.
element. Evaluating the current land use
patterns, densities and relationships will assist An inventory of current land uses in the
you in determining land available to meet community is an important first step. It is
your community’s future land use needs.
19
Chapter 3 – Conducting a Land Use Inventory

important to find out if a land use inventory A further refinement of the inventory might
for your community or GIS layers that could be the creation of a buildable lands inventory,
be used for this task are available from an which includes only land that is available
agency within your community, such as the for development. Land that is vacant and
engineering office or your county or regional has no other physical restrictions, such as
planning commission. The information topography or wetlands, would be identified.
gathered in this step is used to produce a This inventory will give you a more accurate
map of current uses by amount and type idea of how much land your community has
(e.g., residential, commercial, institutional). for development.
Typical methods for determining current land
use involve windshield (conducted from a TIP: An inventory of current land uses should
vehicle) and walking surveys. A windshield be detailed enough to closely represent
survey is useful for large areas such as rural actual conditions.
or suburban areas. In an urban area, where
land uses are more dense a walking survey
may be best. Surveys may be supplemented When calculating the amount of land in an
by aerial photo interpretation, assessment inventory, it can be stated as gross acres,
records from your local assessor and field which includes the sum of the parcels in the
checks. Aerial photos can also provide inventory, or as net acres, which subtracts
building footprints and assist in locating land that will be used for support services,
other landscape features. In addition web such as street rights-of-way. It is important to
resources, such as WISCLAND (DNR) can be consistent whether your inventory is based
be useful for rural areas. on gross or net figures.

Many times, general land use descriptions

such as “commercial” are used to describe a Preparing a Base Map
range of activities that may vary significantly
in terms of overall character and intensity of One of the essential first steps of any
use. This guide recommends using a more planning project will be compiling current
detailed land use classification system that mapping data from the town, village, city,
more closely reflects the actual function and county, regional planning commission
character of various land use types. This (RPC) and other state and federal sources, as
will also serve as a useful prelude to helping necessary. This data will be used to produce
define your community’s desired mix and a base map for the comprehensive plan,
intensities of land uses. The inventory is which in turn will be used to produce maps
an important first step to producing a color for the individual plan elements.
map of your community’s current land use
showing its locations and relationships Your community’s needs, goals and
between all land use types. objectives should define the base information

The Land Cover Data (WISCLAND) site can provide a starting point for collecting useful data for a
rural community: http://www.dnr.state.wi.us/maps/gis/datalandcover.html
Regional planning commissions are another source for information and for more specific land use
categories.

20
 Chapter 3 – Conducting a Land Use Inventory

Table 2
Types of Land Use Classification Systems

• Land-Based Classification Standards - American Planning Association

• Real Estate Classes for Assessment - Wisconsin Department of Revenue
• Standard Land Use Coding Manual (SLUCM) - Federal Highway Administration and
Department of Housing
• Standard Industrial Code / North American Industrial Classification System (SIC/NAICS)
• Land Use and Land Cover Classification System- USGS
• Land Use Codes – Wisconsin’s Regional Planning Commissions
• County-created system

that is collected. The base information is Deciding on Land Use Categories

mapped to provide an understanding of
the current land patterns. The maps should Before creating your current land use map, a
show vacant lands, lands suitable for land classification system should be selected.
redevelopment and committed or already Table 2 lists commonly utilized land use
developed lands. You may want to highlight classification systems. Appendix C contains
land uses that attract economic growth, such the color codes for Activity and Function as
as commercial centers or industrial parks. defined by the Land-Based Classification
Maps indicating property lines are also Standards Project from the American
useful. Ownership information can also be Planning Association.
useful and will allow you to notify property
owners affected by the plan. To obtain When determining your community’s land
ownership information contact the county classification system consult with your
assessor’s office or planning department. county’s planning office or land information
office for assistance. Listed in Table 3 are two
examples of land use categories.

Table 3
Two Classification Systems Broken Down by Category

American Planning Association Wisconsin Department of Revenue

Residence or accommodation Residential
General sales or services Commercial
Manufacturing and wholesale trade Manufacturing
Transportation, communication, information and utilities Agricultural
Arts, entertainment, and recreation Undeveloped
Education, public administration, health care, etc. Agricultural forest
Construction-related businesses Forest
Mining and extraction establishments Other
Agriculture, forestry, fishing and hunting
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Chapter 3 – Conducting a Land Use Inventory

Collecting Current Land Use Data interpretation of that data. The current land
use map is used extensively throughout the
Data collection is like a scavenger hunt. You planning process and will serve as the basis
decide what information is needed to develop of comparison for land use alternatives that
your plan and then collect it. As you begin to the community considers.
look you may find other sources or types of
data that are helpful to the planning process. Figures 4 and 5 on pages 23 and 24 show
two examples of current land use maps. The
Data and information for the land use first is an example of a current urban land
element is available from local, county, use map and the second is a rural town’s map
state, and federal government. Data may example.
also be available from other locations such
as private companies, libraries, school and Once a classification system is determined
utility districts. For example, demographic a current land use map is drafted based on
data is available from the federal census. the information collected. When drafting a
Construction and housing data is available map, it is best to use conventional colors. For
from building permits found at the local or example water features are designated blue,
county level. Analyzing the data you collect forests are designated green, and industrial
will help you determine your future land use uses are designated purple. Keep in mind
needs. that a current land use map is not a zoning
map.
Managing time and resources requires
attention to the amount of data collected and
An existing land use map is not a zoning
organized. Sufficient data is necessary to map!
ensure accuracy and accountability.

A separate zoning map may be drafted and

Additional information on land data can
be found in the Directory of Resources for used as a primary tool for implementing the
Comprehensive Planning in Wisconsin at community’s comprehensive plan. Zoning
www.doa.state.wi.us. maps will be discussed further in Chapter 8
– Implementation Tools.

It is also important to distinguish between

Preparing the Current Land Use land use and land cover. Land cover is
Map defined as the observed physical cover on the
earth’s surface. Land use is defined by the
Maps are one of the most dramatic displays activities of people within a land cover type.
of land use information. By conveying The definition of land use then establishes
substantial amounts of information at a a direct link between land cover and the
single glance, maps play a central role in actions of people in their environment. The
the development and presentation of any following examples illustrate both definitions:
plan. They provide a visual exhibit to
citizens of the collected data and assist in the A land cover term is “grassland”, while
“rangeland” or “tennis court” refers to the
22
 Chapter 3 – Conducting a Land Use Inventory

use of a grass cover. “Recreation area” is

a land use term that may apply to different
land cover types, such as a beach, park or
woodlands.

Chapter 4 of the guide lays out eleven

different analysis techniques that can be used
to help prepare the future land use map.

Figure 4
Example of Current Land Use Map for the City of
Ashland, Wisconsin

23
Chapter 3 – Conducting a Land Use Inventory

Figure 5
Example of Current Land Use Map for the Town of Harrison, Wisconsin

24
 Chapter

Land Use Analysis

Included in this chapter:




Overview of Analysis Techniques
Description of Eleven Analysis Techniques
Completing the Analysis
4
Introduction The next step is to analyze the inventory
data, public input, and the unique assets,
So your plan commission has completed a opportunities and challenges facing your
current land use inventory and collected a community. Information should be used
lot of other background information. What from previous elements that have been
comes next? Should the commission sit drafted. Analysis is the bridge from
around a table with markers and start drawing all the background information to the
a future land use map? What basis will the recommendations and maps for the land
commission use to make recommendations use element. Thoughtful analysis can lead
for future land use? How can this be more to a future land use pattern that is efficient,
than guesswork? practical, responsive to the public, and
focused on your community’s unique
Certainly, public participation and discussions character. While there will always be a need
with interest groups—like neighboring for judgment in the planning process, analysis
communities, real estate experts, large land leads to informed judgment. This often leads
holders, and environmental advocates—will to greater ownership, understanding, and
help. confidence among the community, and a
more understandable and defensible plan.

25
Chapter 4 – Land Use Analysis

Overview of Analysis Techniques function, it is wise to describe the types of

analysis that were completed in the land
This chapter lays out eleven different use element of the comprehensive plan.
analysis techniques that may be considered Explaining why certain land use choices were
to help prepare the land use element, and the made can be as important as explaining what
entire comprehensive plan itself. Several those choices are. These “whys” are based
techniques depend on bringing together data on thoughtful analyses combined with your
your community may have collected in other community’s values expressed through the
elements. The techniques described in this planning process.
chapter include:
1. Regional Context Analysis Ultimately, it is important for community
2. Community Opportunities Analysis planners to take a step back from the data and
3. Community Visualization Techniques input collected and ask the question: What
4. Demographic and Economic Data does it mean for where we should head in the
Interpretation future? Completing these techniques adds
5. Natural Resources and Soils Analysis meaning to the information.
6. Cultural Resources Analysis
7. Utility Analysis
8. Transportation System Analysis Description of Eleven Analysis
9. Growth Factors Analysis Techniques
10. Existing Zoning/Build-out Analysis
11. Land Use Demand Projections The following section describes eleven land
use analysis techniques. The description of
Your community should consider completing each technique considers why it is important,
a number of these techniques. They what aspect of land use planning it is most
may be performed to various degrees of useful for, and whether it is more applicable
depth, depending on how complex your to an urban or rural setting (or both).
community is, what types of information are
available, and how much budget, people, 1. Regional Context Analysis
and time are available. Your community’s
values—expressed earlier in the planning • Helps to learn how regional surroundings
process—may point you in the direction of affect your community’s possibilities.
some techniques over others. Also, whether • Aid in planning for future land uses that
your community is an “urban” city, village or complement what is taking place in the
town or considers itself “rural” affects which surrounding region.
techniques are appropriate. • Use for all types of communities.

Completing some of these land use analysis No community exists in a vacuum. All
techniques will lead to a more defensible communities are influenced by their place in
plan. It will make your future land use the larger region that includes and surrounds
recommendations easier to justify to the them. This regional context has a major
public and to possible skeptics. Responsible influence on future land use possibilities.
analysis will also help your community in The regional context is formed by regional or
the event of a legal challenge. To serve this
26
 Chapter 4 – Land Use Analysis

statewide natural features, Figure 6: Regional Context Map

economic development
efforts, transportation
locations and decisions,
and the plans and actions
of nearby communities
and other agencies. At a
minimum, your community
should understand what
neighboring communities
and government agencies
with some jurisdiction
within your community are
planning. The combined
experience of your
community may be all that
you need to uncover and
understand other aspects of
the regional context.

The regional context

is different for every
community. See Figure 6
for an example. Each bullet
below links to another
element in the plan. For
example:
• Projected job growth
(or job loss) in one
community influences
the type and amount
of housing pressure in
a nearby community.
For example, the
growth of Lands’ End
in Dodgeville had a
significant effect on This regional context map for Marquette County helped identify tourism and
other opportunities based on its regional position.
housing construction in
nearby communities. Managed Forest Land program—may
The community should refer to the result in large areas being removed as
economic development element. possible future development areas. The
• County or state programs to preserve Managed Forest Land program, for
farms or forest lands—such as a purchase example, requires the property owner to
of development rights initiative or the
27
Chapter 4 – Land Use Analysis

agree that most enrolled land will not be context can and should influence the future
developed. Refer to your agricultural, land use pattern and map, and what role
natural and cultural resources element. and responsibility your community may
• A community located where three have in the larger region. Time and budget
Interstate Highways join may have unique permitting, it can be helpful to describe
economic opportunities given traffic or map this regional context for public
volumes or a potential new interchange. forums or in the comprehensive plan to
These might include traveler-oriented provide the basis or justification for land use
commercial development or distribution recommendations.
businesses. A community located
somewhat away from this Interstate 2. Community Opportunities Analysis
may be affected in different ways—such
as pressure for new housing because • Helps to decide how unique opportunities
of easy access to the Interstate and a affect future land use.
nearby metropolitan area. Refer to your • Aids in planning for enough land to take
transportation element. advantage of future opportunities.
• A county may have major tourist • Use for all types of communities.
destinations, contain unique natural areas
and quaint villages, and be within a short A community opportunities analysis can
drive of large cities—suggesting tourism provide new insight on “big picture” ideas
and retirement community opportunities. inspired by the community’s unique mix
This is what occurred in Green Lake of assets and potentials. Your community’s
County in central Wisconsin—located economic, physical, environmental,
a short drive from Milwaukee, the Fox transportation, and social attributes together
Valley, Madison, and Chicago. Refer to provide direction for future changes in the
your economic development and natural land use pattern. The particular opportunities
resources elements. will vary depending on your community’s
• The community may have a role in unique attributes and particular areas
a major regional initiative to expand of interest. For instance, a community
agricultural-based technology businesses. opportunities analysis may suggest
For example, agricultural operations opportunities for:
in a town may be able to provide raw • Capitalizing on unique community
materials to businesses in a proposed resources, new development
business park in a neighboring city. This opportunities, or revitalization activities
opportunity makes planning for continued in a way that also enhances community
agricultural use in the town more realistic. character. For example, planning for the
Refer to your economic development and reuse of an old warehouse area next to a
agricultural resources elements. downtown for housing may provide both
affordable housing and more foot traffic
Analysis of your community’s regional for downtown businesses.
context suggests future trends, pressures, • Improving the economic viability of a
opportunities, and constraints for different downtown, highway corridor commercial
land uses in your community. Community area, or rural crossroad community. For
planners should consider how the regional example, the introduction of a community
28
 Chapter 4 – Land Use Analysis

waste treatment system to a declining There are few effective substitutes to

rural community with groundwater graphics, particularly photographs, in
quality problems may spur additional communicating desirable or undesirable types
investment. or traits of future land uses. Most people
• Promoting new directions in economic have an easier time sharing their ideas of the
development or maximizing the “good community” by pointing to photos
advantage of existing industries that of good (or bad) development than trying
relate to new or emerging markets. For to share these ideas verbally or in writing.
example, a county with large forested Visualization techniques to help analyze
areas and related processing facilities desired types and locations of future land
may explore how “new uses” for forest uses include visual preference surveys and
products might lead to a need for community photo exercises. At this point
preserved or additional land for forestry, the community should refer back to any
manufacturing, and affordable housing visioning that was done as part of the issues
for future workers. and opportunities element.
• Protecting and promoting agricultural,
natural and historic resources as a means
to preserve community identity, better
manage the environment, or promote
tourism. For example, minimizing future
housing density next to a world-class
trout stream may help preserve water
quality and the area’s remote feeling,
which may in turn bring more anglers to
the area.

Your community’s land use element should

be designed to take advantage of these
opportunities through a complementary future
land use pattern and map. As suggested
by the examples above, the impacts on the
future land use pattern and map will differ
depending on what particular opportunities
your community identifies.

3. Community Visualization Techniques

• Translates easily misunderstood land use

desires into easily understood pictures.
• Identify desired character (such as
appearance) of future land uses.
• Use in all types of communities. These photos, taken by Plan Commissioners from the
Town of Bradley in northern Wisconsin, helped inform
the types of future land uses they wanted to show on
their future land use map.
29
Chapter 4 – Land Use Analysis

The visual preference survey involves rating a gain consensus on how this reflects future
collection of photographs that depict different land use desires.
options for new development, preservation,
or community change. A visual preference 4. Demographic and Economic Data
survey usually involves a digital presentation Interpretation
using “stock” photographs of different
options taken from outside of the community. • Helps to decide future land use impacts of
This exercise may be administered to population and job trends.
community planners in a small meeting or • Aids in planning land use amounts and
in a large public forum. Highly rated photos types to reflect demographic trends.
are then analyzed for common characteristics • Use in all types of communities.
(for example, preferences for pastoral
landscapes, high architectural standards, The comprehensive planning law requires
traditional or contemporary neighborhood collecting and reporting demographic
forms). These may lead to the creation of information about your community. This
different future land use map categories to information—particularly an analysis of
help bring about desired land use types. For trends and forecasts—can be useful in
example, if a visual preference survey shows preparing the land use element. However,
a strong community desire for “traditional the amount of available population
neighborhood” development (grid streets, and employment information can be
small lots, short setbacks, front porches), overwhelming. Also, population and job
that community might create and map a growth projections included in plans can be
“traditional neighborhood” land use category either an objective look at the future or a
on their future land use map. community “wish” for more or less growth
than what an outsider might suggest is likely.
A community photo survey is another Sorting through and correctly interpreting
visualization technique useful in preparing demographic information is therefore critical.
the land use element. It is designed to help
planners communicate community traits Demographic and economic data that
that are worthy of preserving, repeating, or was collected as part of the issues and
correcting. This exercise is done through opportunities, housing, or economic
photographs, taken by community members, development elements can be particularly
of preferred traits either found locally or useful in preparing the land use element.
in other communities. These places may This data includes:
include scenic vistas, historic buildings, • Population growth—Population trends
archaeological sites, gathering spots, rural help inform how much land will be
crossroads, groups of houses, parks, trails, needed in the future for housing, jobs,
streams, lakes, farms, forests, undeveloped schools, parks, and shopping. Trends
areas that should stay undeveloped, in household size are also important in
promising development sites, signs, or other uncovering the relationship between
scenes. It is then useful for community population growth and housing demand.
planners to review these images, map Land use demand forecasting based on
locations where the photos were taken, and population growth projections are covered

30
 Chapter 4 – Land Use Analysis

in greater detail under the “Land Use 5. Natural Resources and Soils Analyses
Demand Projections” technique described
below. • Helps to analyze/determine the physical
• Age levels—Wisconsin communities will suitability of lands for different land uses.
need to plan for the retirement of the large • Aids in planning for all types of land
Baby Boom population—more and more uses, such as industrial, and will not result
of which will not head to the Sun Belt. in property or environmental damage.
This has important land use implications • Use for all types of communities, but
for emergency service facilities, and especially rural communities.
likely future demand for different types
of housing such as condominiums and Understanding the underlying physical
senior apartments, and large retirement characteristics of land is critical in making
communities. responsible land use planning decisions. The
• Workforce size and skills—A workforce agricultural, natural, and cultural resources
with high educational levels, strong element often includes information and
technical skills, or available capacity maps on natural resources and soil suitability
(in other words, some unemployment) for different types of land uses. This data
may suggest different economic growth should also include prime agricultural soils,
opportunities, which may lead to soils with limitations for development,
decisions on business or industrial park groundwater recharge areas, aggregate
locations. For example, one community resources (sand and gravel), drainage
with a large number of post-graduates basins, sensitive natural areas, parks, and
might be a strong candidate for a new archaeological and historical resources.
research or office park, while another This element should identify all the things a
community with a highly-trained community wants to protect.
workforce and a technical college may
be a good location for a future industrial Connecting different natural areas—such
park. as floodplains, wetlands, and stormwater
• Economic activity—Learning about the drainage routes—can form areas called
number and type of jobs, mix of existing “environmental corridors.” These are
industries and retail uses, availability of generally long, continuous blocks of
sites for new commercial and industrial natural areas. These form a framework
development and expansion, and for land use planning by serving as areas
existing local economic development for public and other permanent open
efforts is important to understand future space, and by providing logical edges
opportunities for additional commercial between different planned land use areas
and industrial areas—and residential areas where incompatibilities may otherwise
to support their future expansion. result. For example, an environmental
corridor might serve as a buffer to separate
In short, collecting demographic and a heavy industrial area from a residential
economic data for the other elements should neighborhood. It is important for a
be actively used and analyzed to help inform community to understand the physical and
the land use element. legal limitations for development that many
of these environmental features create for
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Chapter 4 – Land Use Analysis

Figure 7: Soil Suitability Map

A map showing areas most suitable for agricultural cropping can help determine where large blocks of farmland
should be recommended for preservation on the future land use map.

future land use before preparing their future (e.g., septic system installers). Identifying
land use map. former landfill (dump) sites through the
Wisconsin Department of Natural Resources
Determining the suitability of soil types for and local inventories is also critical—new
certain uses is also critical in preparing a wells are generally not permitted within
responsible future land use map, particularly 1,200 feet of such locations.
for rural communities. See Figure 7 for
an example. Sorting lands according to 6. Cultural Resources Analysis
criteria like productivity for agriculture,
or ability to withstand certain types of • Helps to identify land uses important to
development (for example, septic suitability community history and character.
or subsurface stability) can provide the • Aids in planning for future land uses
rationale for many important future land in locations that do not impair cultural
use decisions. County soil surveys and land resources.
conservation staff employed by counties • Use in all types of communities.
can provide a wealth of information on the
characteristics, productivity, and limitations Cultural resources identification and analysis
of the various soil types in your community. plays an important role in the preparation
This information may be supplemented with of the future land use map. Here is where
interviews or mapping exercises with local the cultural resources element will need
farmers and others familiar with soil quality to be consulted. For example, a historic
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 Chapter 4 – Land Use Analysis

downtown could be a community’s focus to served by public utilities.

either preserve or revitalize. A historic city • Use primarily in “urban” communities
hall might serve as a community symbol, with public utilities.
important for both practical and aesthetic
reasons. A rural town may decide to preserve For this analysis, you should refer to the
its countryside by helping to preserve older utilities and community facilities element.
farmsteads and barns. For communities with public sewer and
water systems, an analysis of the locations,
A variety of national and local sources of and planned or logical service areas of those
information should be sought and reviewed to systems is an important part of developing
see if there are significant cultural resources the land use element. It is also critical
in your community worth preserving and to understand the physical condition and
considering in preparation of the land use capacity of major utility systems, such as
element. One key indicator of significance the wastewater treatment plant and sanitary
is whether or not a resource is listed in the sewer interceptor lines. See Figure 8
National Register of Historic Places. The for an example map. Most communities
National Register is the official national list with municipal water wells have also
of historic properties in America worthy of mapped wellhead protection areas—where
preservation. A list of resources included in
the National Register can be found at Figure 8: Sewer Interceptor Service Area Map
www.wisconsinhistory.org/hp/register.
Local historical societies and landmarks
commissions are also excellent resources.
A list of local historical societies (www.
wisconsinhistory.org/localhistory/directory/
regionsearch.asp) and local landmarks
commissions (www.wisconsinhistory.org/
hp/smartgrowth/getting_started.asp) can be
found on the Wisconsin Historical Society’s
website. For areas with archaeological
sites like burial or effigy mounds, the
appropriate Native American tribe should
be consulted, a list of which can be found
at www.500nations.com/Wisconsin_Tribes.
asp. Consulting directly with the Office
of Preservation Planning at the Wisconsin
Historical Society is also worth considering.

7. Utility Analysis

• Helps to coordinate future land uses with

utility system capabilities.
• Aids in planning for future locations and The location of a planned sanitary sewer interceptor—
and the mapping of its service area—can have a
types of land uses that can efficiently be tremendous impact on future land development.
33
Chapter 4 – Land Use Analysis

groundwater recharges those wells. Planning on public sanitary sewer service. It is also
for amounts, densities, types, and locations important to learn how changes to these
of future land uses that relate well to utility boundaries might occur in the future, in case
system possibilities and limitations will result your community’s land use interests are
in a land use pattern that is less difficult different from what these boundaries suggest.
and costly to achieve, and will protect those This information can be obtained from the
systems from damage. regional planning commission in your area
or from the Wisconsin Department of Natural
Most communities with utility systems Resources.
have a utility manager, municipal engineer,
or a public works director that can help 8. Transportation System Analysis
community planners understand the
capacities and constraints of the utility • Helps to coordinate future land uses with
system. They can also help you understand transportation facilities.
where the most cost-effective locations for • Aids in arriving at realistic assessments
future growth may be, based on an analysis of relationships between land uses and
of drainage basins. For example, a sanitary transportation facilities, such as access
sewer system that relies on gravity flow as control.
much as possible will be more cost effective. • Use in all types of communities.
USGS maps, other topographic maps, and
field observations can also aid in determining The comprehensive planning law requires an
drainage basins. understanding of the locations, conditions,
and capacity of roads and other transportation
Communities with over 10,000 people facilities. It also requires an understanding
statewide, and all communities with of local, county, regional, and state
sanitary sewer systems in certain regions, transportation programs and plans that may
must have a Sanitary Sewer Service Area. result in future changes to transportation
These areas—also called Urban Service facilities. Not only roads and highways, but
Areas—identify places in and around these when appropriate, bus, rail, and bike and
communities where sanitary sewer extensions pedestrian programs and plans need to be
may legally occur. They are generally drawn understood.
with reference to logical drainage basins,
natural areas, and future population and land Planned transportation projects can have
use demand forecasts. The land use element a major influence over future land use
requires identification of these boundaries opportunities and patterns. For example,
and staging of service provision as identified plans for a state highway bypass can
in the utilities and community facilities have a significant influence on farmland
element. preservation, natural area protection,
economic development, and housing location
It is important to understand the locations decisions.
and effect of Sewer/Urban Service Area
boundaries when preparing the land use It is essential that community planners
element. In general, these are areas that take into account all planned and potential
should be considered for future development changes to the transportation system in
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 Chapter 4 – Land Use Analysis

Figure 9: Growth Factor Analysis Map

This Growth Factors Map for the Village of Mcfarland featured the depiction of major drainage basins and flows,
which in turn advised growth areas on that community’s future land use map.

preparation of their land use element. It is • Use in all types of communities, but
also important to note that local communities particularly urban communities.
frequently do not have direct control over the
placement, type, or timing of many major A growth factors analysis charts the direction
transportation facilities. The district office of and pace of recent development and identifies
the Wisconsin Department of Transportation areas with the greatest potential, lowest costs,
should be consulted to uncover relationships and minimal impacts for future development.
between future land uses and state and federal This type of analysis can help guide where
highways. a community should and should not grow—
particularly a community that uses public
9. Growth Factors Analysis utility systems. This analysis should refer
to many of the other elements: economic
• Aids in compiling different natural and development, housing, transportation,
man-made physical factors that affect agricultural, natural, and cultural resources,
where community growth may be and utilities and community facilities.
appropriate.
• Helps to plan for large areas where future It is important to map key growth factors to
land development may be more or less complete this analysis successfully, although
appropriate given physical and other this map does not have to be of presentation-
opportunities and limitations. quality. See Figure 9 for an example map.
35
Chapter 4 – Land Use Analysis

Many of these factors may have already been transit improvements can have significant
determined through earlier analyses, and from impacts on future growth.
other elements in the comprehensive plan.
Factors that should be mapped as part of this Each category explained above can be
analysis include: layered within a Geographical Information
• Past growth patterns—This could be a System (GIS) through input by the
picture of how much growth has been community. These categories can be
added to the community in each decade prioritized, with the assistance of a trained
and where growth occurred, perhaps facilitator.
accompanied by a table that shows land
consumption over time. The future land use map can then be created
• Drainage basins—An analysis of within the template formed by the growth
drainage basins at community boundaries factors analysis. The growth factors analysis
is important for communities with is best at helping decide where future
public sanitary sewer and stormwater development should or should not occur, not
management systems. In general, growth what types of development should occur.
is more cost effective in areas when
sanitary sewage can flow downhill to 10. Existing Zoning/Build-out Analysis
the treatment plant. Your community’s
engineer may already have mapped the • Relate what can be done today under
drainage basins for your community. If existing zoning to what the community
not, interpretation of topographic maps— wants to see in the future through the land
such as USGS quadrangle maps—can be use element and future map.
completed with relatively little training • Determine areas where future land use
and Wisconsin Department of Natural desires and existing zoning are out of
Resources can be contacted as well. alignment.
• Environmental corridors—This • Use in all types of communities, but
involves layering different natural particularly communities with a lot of
and environmentally sensitive areas undeveloped land.
where development should not occur.
Environmental corridors should include It is often useful and enlightening to think
floodplains and wetlands, but may also about how your community would look if it
include steep slopes, mature woodlands, became fully developed in accordance with
rare or endangered species, archaeological the zoning map and rules in place today. This
sites, or other natural features important is referred to as a build-out analysis. For
to your community. example, a county in northern Wisconsin
• Productive farmlands—This may include completed a simple build out analysis
large blocks with significant farming for towns with a “recreational” zoning
activity, areas with high-quality soils district, which allowed houses on 30,000
as determined through the county soil square foot lots. This revealed allowable
survey, or other factors determined to be numbers of housing units that were not
important. in line with the rural character objectives
• Planned transportation projects— that plan participants voiced. This led to
Projects like new roads, bypasses, and a recommendation in the land use element
36
 Chapter 4 – Land Use Analysis

that many of these parcels be rezoned in the residential, commercial, industrial, and
future to a new “rural lands” zoning district agricultural areas.
with lower development densities. • Use in all types of communities.

Ideally, the comprehensive plan and land use Projecting demand for future land uses is
element should be prepared before, and serve required under the comprehensive planning
as a guide for developing the community’s law. Specifically, your community’s plan
zoning map. In reality, many communities should include projections for the demand
already have a zoning map before beginning for future residential, commercial, industrial,
the comprehensive planning process. That and agricultural uses over the next 20 years,
zoning map may or may not have been in five year increments. These demand
prepared following an earlier comprehensive projections will help advise what a reasonable
or land use planning process. supply of land in these different land use
categories should be. The supply of land
available for different future land uses is then
A zoning map should ideally be prepared
or revised following the completion of the
depicted on the future land use map.
future land use map and adoption of the
Comprehensive Plan. Community planners can use a variety of
techniques to project demand for different
types of future land uses. These may rely
For communities that are zoned, the current on state and industry population and job
zoning map and zoning district rules are forecasts, discussions with local real estate
useful to review before preparing a future experts, analysis of past land consumption
land use map. In certain cases, existing trends in the different land use categories,
zoning districts and boundaries may and explorations of community opportunities,
correspond quite directly to community regional context, and emerging trends. The
interests. In those cases, the future land following is one relatively simple approach
use map can be generally reflective of for making land use demand projections:
the existing zoning map. Minimizing • Residential—Multiply the housing unit
the number of zoning changes that have demand projections developed as part
to be made following the comprehensive of the comprehensive plan’s housing
planning process is often a reasonable goal. element by expected average residential
In other cases, the community’s interests densities over the next 20 years.
might be quite different from what existing Expected densities may be based on
zoning allows. In those cases, the new recent trends or on community desires for
comprehensive plan might advise future different future densities.
zoning map changes. • Commercial and Industrial—Perhaps
the simplest way to project demand for
11. Land Use Demand Projections commercial and industrial land uses
is to assume a constant proportion of
• Identify how much land may be shown land in these respective categories to
in different land use categories on future residential land use acreage. This allows
land use map. for a relatively simple calculation once
• Provide a basis for the size of future projected residential land use is obtained.
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Chapter 4 – Land Use Analysis

Another method that could be used to It is also important to remember that the
determine the future land use needs is analysis stage will help the community
to first determine the current employees to prepare the land use element and the
per acre ratio, using total employment comprehensive plan, but it will not substitute
and existing land area. Next, project for judgment and some difficult decisions.
future employment based on historic In some cases, communities consider, map,
trends, usually 20 years, and apply that and illustrate different alternatives for future
ratio for future employment related land growth and change based on their analyses,
uses. Rural communities with little to no and allow the public and other participants to
commercial or industrial use (or any real evaluate those different alternatives.
potential or desire for any) may suggest
that this is the case in their plan. Chapter 5 of the guide discusses the task
• Agricultural—Analyzing past trends in of developing land use goals, objectives,
conversion of agricultural use to other policies and programs. It also discusses
land uses is usually the simplest way to public participation needs, implementation of
project future demand for agricultural goals, and ways to monitor progress.
lands. However, relying only on past
trends may not capture new trends in
agriculture. Referring to the agricultural
resources element should be useful.
Local farmland preservation desires and
opportunities may suggest that past trends
may change. Data on past conversion
rates should be available from your UW
Extension office. These rates may be
combined with the count of existing
acres in agricultural use, ideally obtained
through the current land use inventory.
Urban communities with little or no
farmland may simply suggest that this
trend is likely to continue. However,
agricultural land in many “urban” areas
is actually increasing with the growth of
community gardens, for example.

Completing the Analysis

Once your community has collected,

analyzed, and understood the various
information and possibilities for your
community, you will move to the next step in
the process. First, it is important to share that
information with the public and get feedback.
38
 Chapter

Creating Land Use Goals,

Objectives, Policies and
Programs
Included in this chapter:
■
■
Defining Goals, Objectives, Policies and Programs
Involving the Public to Build Consensus
5
■ Writing the Goals, Objectives, Policies and Programs
■ Integrating the Goals of Other Elements
■ Implementing Goals and Objectives

Introduction to establish a framework for future decision-

making.
Creating goals, objectives, policies and
programs is a critical step in the development About two-thirds of Wisconsin communities
of the land use element. Not only are goals, surveyed in January 20047 indicated that
objectives, policies and programs required the development of goals and objectives
under the comprehensive planning statute, was a moderately easy process. However
but these statements provide a basis for ,respondents noted a number of challenges:
a community to make decisions about its • The differences between and the actual
future land use. Once your community has function of goals, objectives, policies and
collected and analyzed information, it is time programs were not well understood.

7
Roberts, Rebecca and Chin-Chun Tang. 2004. The Wisconsin Planning Experience: Results from the Community Planning
Survey. www.uwsp.edu/cnr/landcenter/pubs.html.
39
Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

• Articulating goals was difficult. a good chance the objective may actually be
• Objectives were not measurable. more appropriately written as a goal.
• There was a lack of public involvement.
• There was a difficulty in reaching Policies are “operational” actions that a
consensus on goals, objectives, policies community will undertake to meet the
and programs. goals and objectives. Communities have
This chapter will focus on these challenges, many policies; some will relate to the
as they relate to the land use element. comprehensive plan, while others may not.
Many of the concepts offered in this Keep in mind these policies may be existing
chapter can be applied when creating goals, or can be newly created within the planning
objectives, policies and programs for other process. Some policies will require further
comprehensive plan elements. action by the local government such as an
ordinance or resolution. When drafting
policies, it is best to identify in the plan
Defining Goals, Objectives, Policies which are existing policies, new ones that can
and Programs be implemented immediately, or ones that
need further approvals from the governing
Goals and objectives are the things that a body.
community hopes to accomplish—how the
community would like to be in the future. Other Definitions
They provide direction for community
decisions. Land use policies are the rules Goal: A desired state of affairs to which
or actions that a community intends to planned effort is directed. From
implement to meet the desired goals and “Growing Smart Legislative Guidebook,”
American Planning Association, 1998.
objectives.
Objective: A goal or end toward the
There are several ways to define goals, attainment of which plans and policies are
objectives, policies and programs for land directed. From “A Development Plan
use. Here are a few straightforward, planning for Waukesha County, WI”, Southeastern
definitions for each of the terms. Wisconsin Regional Planning Commission,
1996.
Goals are general statements of desired
outcomes of the community. While often Policy: A general rule for action focused
broadly written, goals should be stated on a specific issue, and derived from
specifically enough so that it is possible to more general goals. From “Growing
Smart Legislative Guidebook,” American
assess whether progress has been made in
Planning Association, 1998.
achieving them.
Program: A group of related projects and
Objectives are more specific and are a subset activities with a specified set of resources
of goals, providing measurable strategies. (human, capital, and financial) directed to
Objectives should not stand alone without a the achievement of a set of common goals
goal. If an objective does not fit under a goal within a specified period of time. web.
and it is considered important, then there is idrc.ca/ accessed May 2005.

40
 Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

Programs are a system of projects or developed by the Town.

services necessary to achieve plan goals, • Seek to encourage developers
objectives, and policies. (Grant Closeout to install sidewalks in their new
Form, Department of Administration, June developments.
2004) • Work with the County and other
specialists to identify needed
Below is an example of a goal, objectives, sidewalk routes to provide
policies and programs. It is meant to be opportunities for safe pedestrian
illustrative. travel in Forest Junction.
Policy c. Maintain existing identification
Example from City and Town of Brillion signage, including the water tower
Land Use Element identification marker.
Goal: Promote the rural, farming (OMNNI & Associates)
atmosphere in the Town and the “small
town” feel of the City. The key to developing goals, objectives,
City Objective: Promote dense policies and programs is to remain flexible
residential development patterns in enough in the process, understand and
the City to encourage walking to embrace the differences between people’s
shopping, work and community (i.e., ideas and visions, and make sure that the
parks/schools) destinations. language is consistent with other plan goals.
Policy a. Continue to maintain and
extend sidewalks throughout the
community. Involving the Public to Build
Policy b. Coordinate with local students Consensus
and parents to inventory, assess, and
identify sidewalk and trail needs. An overall challenge of the planning
Town Objective: Improve the Forest process is involving the public to help build
Junction area so that it may become consensus. The challenge for developing
a community focal point for quality goals, objectives, policies and programs
development. is that people often have a difficult time
Policy a. Work with the county to understanding how they will work in real-
enforce existing and consider life. Sometimes the thought is that goals,
new overlay landscape and sign objectives, policies and programs do not
regulations to improve community really matter. To a large extent, developing
appearance. goals and objectives should be thought
Policy b. Work with local property of as your community stating its values.
owners and Calumet County to These statements will create a lasting
encourage sidewalk development impression through short sentences of what
throughout Forest Junction. your community cares about. Identifying
Program would: objectives and specific policies also bring the
• Include information about the broad goals to life.
benefits of sidewalks in any
newsletter or web page eventually

41
Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

In some communities, people will have many have been set (see insert below), a facilitator
differing views. Friction can occur quickly, can refer back to the rules and remind others
making building consensus a challenge. to have patience with others’ opinions.
Although views are often not far apart
from each other, the reality of developing Understanding where individual concerns
the appropriate language to describe those lie is important to the process of building
values can become controversial. However, consensus on the goals. Disagreements can
developing consensus on goals and objectives include serious fundamental differences
is not an impossible task. It sometimes takes with specific draft goals or be as simple as
a more iterative approach to accomplish, minor wording changes to improve goal
meaning a community needs to revisit its language. Fundamental differences should
goals, objectives, and policies as it moves be approached carefully, considering most
through the process. Discussion, negotiation differences are value based and can be quite
and compromise are expected when personal. A good facilitator can offer a level
developing goals to achieve a broad range of playing field for participants by keeping
community interests. the discussion moving forward, thwarting
personal attacks, and offering feedback to the
Reaching Consensus solutions offered by participants.
A good facilitator enables a community to
step back from the emotions and focus on
the content of the disagreement. Setting Writing Land Use Goals, Objectives,
ground rules for discussion before major Policies and Programs
disagreements are raised is critical to
advancing the discussion. Once ground rules The goals, objectives, policies and
programs for the land use element should
focus on guiding “the future development
Example Ground Rules for Reaching
and redevelopment of public and private
Consensus:
• Respect others and their opinions. property.” (s. 66.1001, (2)(h), Wis. Stats.)
• There is no such thing as winners or losers Goal language should be developed to be
in these discussions. attainable, while keeping in mind how goals
• Everyone will be offered an opportunity to can be implemented.
add comments, offer concerns, and make
suggestions. In developing land use goals, there is a need
• Everyone must allow the person to start with a base level of data to help shape
commenting to complete his or her what is desired for the future. For many
thoughts, without interruption. communities, the development of land use
• Personally criticizing others for their
goal language will include initiating draft
opinions will not be allowed.
language, discussing what each goal means
• If a person raises an issue, then a potential
solution must also be given. to the community and identifying concerns,
• Everyone should focus on completing the questions or unclear aspects of the goal.
task at hand. Often duplicative goals are combined, and
• No shouting. more specific language is moved under a
goal into an objective or policy. Developing

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 Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

objectives often occurs simultaneously with alternative ways to achieve community goals
goal development. is a critical part of the planning process. The
community also needs to establish indicators
In setting goals, the community should to measure the community’s progress toward
answer the following questions: What achieving its goals.
does your community see as important land
use issues? How should the community
balance future development with other plan Tips for Writing Goals, Objectives &
goals such as limiting traffic congestion Policies
and preserving farmland? How will your • Focus on writing succinct language
community’s land use affect the surrounding – keep it simple, but brief.
region? • Avoid writing too many goals and too
few objectives and policies.
The community also needs to establish • Remember there are often multiple
objectives. Objectives are more specific objectives and policies under one goal.
statements that relate to a goal (see Table
4). In creating objectives, your community
should think of them as stepping stones. Techniques for Developing Goals,
How can a goal be achieved by a set of Objectives, Policies and Programs
tangible and measurable statements? There is no one correct way of developing
goals, objectives, policies and programs.
After setting goals and objectives, the It is recommended that a trained, neutral
community then needs to establish policies. facilitator with experience in developing
Policies are used to guide community goals, assists your community in this process.
decisions in pursuit of a goal and objectives. Facilitation assistance is available through
Policies should provide specific guidance your local planning office, some state
to elected and appointed officials on what agencies, the County Extension Office and
decision to make when confronted with other sources. Facilitating goal development
specific land use issues following plan can also be written into a contractual service
adoption. agreement if your community is employing a
consultant to assist in the preparation of your
In setting goals, objectives, policies and plan.
programs, communities need to rely on the
information gathered in the earlier steps Starting with the development of a broad set
and then explore alternatives. Evaluation of of goals and then narrowing to objectives
and specific policies is generally a good
Table 4 idea. If your community has never engaged
Basic Differences Between Goals and Objectives in planning in the past, brainstorming and
Goals Objectives collecting many ideas will be most beneficial.
If your community has previously developed
Broad Narrow
a plan, it is recommended that the goals
General Precise
contained in the previous plan are examined
Intangible Tangible and considered. When someone has an
Abstract Concrete
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Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

idea or specific goal language, it should Although the incorporation of the

be documented. After reaching the end of comprehensive planning goals is only
brainstorming, goals can be sifted through a requirement for communities with a
to determine if there is overlap, duplication, Comprehensive Planning Grant from the
conflicting statements, or goals in need of State’s Department of Administration, you
further consideration. Oftentimes, language may choose to include these as part of your
will be too specific for a goal but may work community’s plan.
as an objective or policy. Using a “parking
lot” to place those ideas is helpful so that they may also be policies developed outside
do not become lost in the process. Policies of the land use element that will fit more
are more commonly developed throughout appropriately under a land use goal or
the process, well outside of the brainstorming objective. Being flexible is important while
activities for goals. Having a good note taker keeping the process moving forward.
to keep track of these ideas will be important
when determining land use policies. There

State Comprehensive Planning Goals 7. Encouragement of coordination and

cooperation among nearby units of
As a starting point, the State’s Comprehensive government.
Planning law contains 14 goals. Although all 8. Building of community identity by
of these goals may not apply to a particular revitalizing main streets and enforcing
community, they are worth reviewing. design standards.
9. Providing an adequate supply of affordable
A list of the goals: housing for individuals of all income levels
1. Promotion of the redevelopment of throughout each community.
lands with existing infrastructure and 10. Providing adequate infrastructure and
public services and the maintenance and public services and an adequate supply
rehabilitation of existing residential, of developable land to meet existing and
commercial and industrial structures. future market demand for residential,
2. Encouragement of neighborhood designs commercial and industrial uses.
that support a range of transportation 11. Promoting the expansion or stabilization of
choices. the current economic base and the creation
3. Protection of natural areas, including of a range of employment opportunities at
wetlands, wildlife habitats, lakes, the state, regional and local levels.
woodlands, open spaces and groundwater 12. Balancing individual property rights with
resources. community interests and goals.
4. Protection of economically productive 13. Planning and development of land uses
areas, including farmland and forests. that create or preserve varied and unique
5. Encouragement of land uses, densities urban and rural communities.
and regulations that promote efficient 14. Providing an integrated, efficient and
development patterns and relatively low economical transportation system that
municipal, state governmental and utility affords mobility, convenience and safety
costs. and that meets the needs of all citizens,
6. Preservation of cultural, historic and including transit–dependent and disabled
archaeological sites. citizens.

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 Chapter 5 – Creating Land Use Goals, Objectives, Policies and Programs

Integrating the Goals of Other a reasonable timeline for when this will
Elements occur and who will be responsible for
its development. Chapter 9 will discuss
Another important part of goal development monitoring progress of your community’s
is making sure that land use goals do not goals, objectives, policies and programs.
conflict with other goals from the housing,
transportation, or utilities and community How Does Your Community Implement
facilities element, for example. When Goals?
faced with multiple goals within a planning Simply put, a community’s actions, activities,
process, the language for each of the elements policies, zoning decisions, and future land
can appear to contradict one another.8 use map are ways to implement goals and
objectives. Sometimes those actions may not
Land use goals should be shaped to support be directly associated with a comprehensive
the goals from other elements. For example, planning effort; however, land use related
if a community has included in its housing activities and decisions should relate back
element the goal of improving the availability to an adopted goal. Chapter 8 will discuss
of senior housing, the land use element implementation in more detail.
may include a broader goal of providing
a sufficient supply of land for a range of One important way to ensure your
housing choices. community implements its desired goals
and objectives is to continue to use the
comprehensive plan to make land use
Implementing Goals and Objectives decisions. Consistency between the
comprehensive plan and zoning ordinances,
This chapter has addressed the issue of subdivision regulations and the official map
why goals are important, but they are only is required by 2010. Keeping elected officials
important if efforts are made to implement and plan commissioners (especially newly
goals. elected or appointed officials) aware of the
comprehensive plan, its content, and the legal
Prioritizing Goals requirements to make consistent decisions is
Naturally, there are priorities that surface critical to successfully implementing goals.
throughout the process. Your community
should spend some time discussing priorities If a community is making decisions in
and the approach you would like to take. conflict with plan goals, there is good reason
To implement goals through objectives to review those goals and revise the plan if
and policies, your community will need necessary. Keep in mind that a combination
to prioritize action items. For example, if of multiple actions and activities are usually
the plan goes into detail about ordinance necessary to implement a goal. Balancing
revisions needed to address preservation of various goals is a tricky but important aspect
agriculture areas, you will need to identify of implementing your community’s plan.

8
See Tang, Chin-Chun. 2003. “Integrating the Local Economy and Natural Resources in the Planning Process,” The Land Use
Tracker, Volume 3, Issue 2, Fall. www.uwsp.edu/cnr/landcenter/newsletters.html.
45
 Chapter 6 provides an overview of the
process to create land use alternatives or
scenarios. Although developing scenarios
is not required in a comprehensive plan, it
is a useful tool for quantifying the impacts
of various land use scenarios, selecting the
most appropriate alternative, and ultimately
developing your community’s future land use
map.

46
 Chapter

Land Use Alternatives or

Scenarios
Included in this chapter:
■
■
■
■
Definition of Land Use Alternatives or Scenarios
Purpose of Creating Alternatives
Guiding Principles
Scenario Building
6
■ Public Involvement

Introduction After exploring several alternatives and

selecting one, the community will prepare
The community has arrived at a step within a future land use map based on a preferred
the land use process that is critical for the alternative.
future of the community. Exploring land use
alternatives or scenarios is the creative, fun, No statutory language in Wis. Stat. 66.1001
visual part of the land use element. Up to requires any community to prepare
this point in the process a number of items alternatives for a comprehensive plan.
have been drafted: a land use inventory and Exploring land use alternatives is an accepted
current land use map; a land use analysis; step in a community or comprehensive
and goals, objectives, policies and programs. planning process. The consideration of
The next step in preparing the land use alternatives can occur through a formal
element is to understand what is appropriate, process where different future land use maps
feasible and possible through an exploration are compared or an informal process where
of different land use alternatives or scenarios. the community discusses alternatives without
creating and printing a series of maps.
47
Chapter 6 – Land Use Alternatives

theme-based, are connected to the vision,

Developing land use alternatives is not
and can be illustrated with photographs,
required as part of state statutes, however
drawings, etc. Alternatives can address
it is a logical step for communities when
community character and natural resources
determining future land uses in a plan.
preservation and can test public reaction
to competing goals and objectives, before
finalizing them. To reiterate, the land use
element brings together many of the other
Definition of Land Use Alternatives
elements of the plan. This opportunity for
or Scenarios integration is an important step in the overall
process of drafting a plan.
Creating alternatives or scenarios is a process
whereby the present situation is transformed
by description and through maps or other Guiding Principles
visuals, such as photographs or drawings, to
a situation in the future. Often three main Exploring alternatives is one of the most
elements are produced: a description of the creative steps in preparing the land use
present situation, a number of alternatives element. The following points can be used as
or scenarios, and possible pathways that community planners, a planning committee
connect the present situation with images of or plan commission moves into this step.
the future. The idea behind scenarios is to 1. Return to the overriding goals or vision
design future images and then “backcast” to of the community. For example, if the
the present situation. The primary question in community discussed maintaining its
backcasting is how can future possibilities or rural character, it is useful in a scenario
desired situations be realized? building exercise to explore the meaning
of rural.
2. Use the analyses from the previous
Purpose of Creating Alternatives chapter to inform your discussions.
3. Remind participants to think “out of the
The purpose of this step is to establish box” and creatively.
a preferred land use alternative. In that 4. Remember that this is not necessarily a
sense, it is focused only on the land use purely economic or financial question.
element. However, referring back to the first Scenarios should think through social
chapter with the hub and wheel diagram, and environmental implications as well.
remember that many of the other elements, 5. Keep ideas on the table that seem
such as economic development, housing, implausible, but may spur discussion.
transportation, utilities and community While some scenarios may not be
facilities, and agricultural, natural and feasible for any number of reasons, it
cultural resources feed into the land use may create useful discussions within the
element. All of those uses of land must community.
be accounted for. The scenarios that are 6. Decide on a formal or informal process
developed serve the purpose of referring of discussing alternatives. Through
the community back to its vision, goals and a facilitated process, participants can
objectives. In that sense, the scenarios are explore various scenarios and rule
48
 Chapter 6 – Land Use Alternatives

out those that are not suitable for zoning, for example, a full build out could be
the community. The future land use accomplished by repeating the predominant
map (Chapter 7) is created from a pattern (perhaps a mixture of 5, 10 and 35
chosen scenario or a hybrid of various acre lots). This status quo picture will give
scenarios. the community an opportunity to decide if it
7. Determine if there is a need to revise is going to accomplish its vision and goals
draft goals/objectives/policies. using its current policies and regulations.
Depending on the outcome of the Each scenario should be discussed in terms of
discussion over land use alternatives, its advantages and disadvantages.
the community may want to revise their
goals, objectives and policies. The A Few Examples To Consider
chosen alternative may not be accurately Most communities need to accommodate
reflected in the draft goals, objectives more residential growth and the
and policies. accompanying demand for parks and open
8. Determine who is making the decision space. One way to think through these
on the preferred alternative and how that needs and desires is to ask participants, in
decision is getting made. It is critical a workshop setting or on-line survey, about
that the decision making process is their preferences for different types of
agreed upon. housing density and subdivision designs. At
the same time, you can also identify the types
of parks and/or open space people desire.
Scenario Building
Another way to explore various land use
In building scenarios, the idea is to come alternatives is to think about unanticipated
up with enough different scenarios so trends or events. For example, if your
certain scenarios can be ruled out, given community were to grow much faster than
vision, goals and objectives. Put another anticipated, how would the community
way, the community is going through a be impacted? How would the community
process of comparing multiple scenarios respond to additional demands for housing,
of what “could be” and selecting the most more school children, increased demand
appropriate one given the community vision, for local government services and for retail,
goals and objectives. The scenarios can among other impacts? Would increased
be primarily visual or may also include a investments be necessary for utilities and
written story. It is useful to include a brief community facilities? There are many other
description of the process that was used questions that can and should be generated.
to create and select the preferred scenario,
but only the chosen scenario needs to be
included within the comprehensive plan. Public Involvement
One useful way to compare and contrast one
scenario with another is to prepare a full Encouraging public participation during this
build out of the community using current step is useful. Sometimes scenarios that
policies and regulations that are in place. show very different futures can create a lively
This technique was discussed in Chapter 4. discussion and engage citizens that have had
In the event that a town does not have any a difficult time comprehending the more
49
Chapter 6 – Land Use Alternatives

abstract steps of this process such as written

goals and objectives.

Because exploring scenarios often is a visual

exercise, the public can readily be involved
with the use of photographs, maps and other
visual tools. For example, if a community
in their vision has mentioned they would
like to “preserve its rural character,” citizens
can be asked to identify the meaning of
“rural character” by taking pictures of their
community. It is probably easier for citizens
to agree over a series of photos with an
experienced facilitator deriving basic design
elements from those photographs.

Public participation techniques can be as

simple as using tracing paper and crayons or
markers or can be made far more complex
with the use of advanced Geographic
Information Systems and visualization
techniques. The techniques used depend
upon the comfort level of the participants in
the process, the expertise of the facilitator,
and the resources allocated to this particular
step. Usually the more technologically
advanced the techniques, the more costly the
step.

Chapter 7 describes how to prepare a future

land use map, a natural progression of the
selection of a scenario.

50
 Chapter 6 – Land Use Alternatives

Example of Alternative Future Scenarios

The following two sets of images shows scenarios for different communities in Wisconsin.
The first community, the Town of Springfield, is subject to significant growth pressure because
of its proximity to the Madison area. The second set of maps shows development concepts for
the area around the City of Sparta, Wisconsin. This type of analysis examines alternative land
use concepts and separately lists (through a public participation process) the advantages and
disadvantages of each land use.

By creating a series of scenarios, a community can create appropriate land use policies to
achieve the vision it has set for itself.

This first scenario shows what the town would look like in roughly 40 years if it developed according to
current policies—relatively scattered rural houses (yellow dots) with low density expansion ofa nearby
city and village.

51
Chapter 6 – Land Use Alternatives

This second scenario shows the same amount of development in the town in the future. However,
rural homesites are smaller and clustered closer to each other and city and village growth would be at
a slightly higher density. This scenario would require more adjustments in local land use policies and
recommendations.

52
 Chapter 6 – Land Use Alternatives

This third scenario again shows the same amount of future development in the town area. However, in
this scenario, future development would be directed to city and village expansion areas. This scenario
would require a significant change in local policies, such as a transfer of development rights program.
These three maps are courtesy of Vandewalle and Associates.

53
Chapter 6 – Land Use Alternatives

The following analysis examines alternative land use concepts by listing the different advantages and disadvantages of each.
The alternatives are graphically presented on the Development Concepts Map on the facing page. The number corresponds to
the location of the land use area on the map.

Development Concept 1
............................

Open Space/Environmental Corridor Industrial Area #7 Institutional Area #11

Area #1 Advantages: Advantages:
Advantages: • Level land. • Expandable Site.
• Naturally provided. • Owned by the City. • Level Land.
• Unsuitable soils for development. • Utilities available • Utilities available
• The backbone of why many people • Adjacent to the railroad Disadvantages:
live in the area - to enjoy their life. Disadvantages: • Not currently owned by the School
Disadvantages: • Not readily accessible to I-90. District.
• Requires protection. Would benefit with better access
• Restricts use and abuse of the land. to I-90. Institutional Area #11A
Advantages:
Park Areas #2 and #3 Industrial Area #8 • Partially owned by the County.
Advantages: Advantages: • Good access to STH 16 and I-90.
• Physically attractive areas. • Level land. • Reasonably level Land. Expand-
• Located in both the Town and the • Adjacent to the railroad, I-90 and able site.
City. STH 16. Disadvantages:
Disadvantages: • Some of the land owned by the • A variety of land uses in the area.
• Some land acquisition necessary. City.
• Some of the land currently an ac- Single Family Residential Area #12
Industrial Area #4 tive City industrial park. Advantages:
Advantages: Disadvantages: • Adjacent to existing residential
• Good access to I-90. • Consists of many smaller parcels. uses.
• Generally level land. • Some of the site not readily acces- • Some level Land.
• Partially located in the City. sible to I-90. Would benefit with • Aesthetically desirable land.
• Partially owned by the City. better access to I-90 Disadvantages:
Disadvantages: • Some of the site needs extension of • Some steep slopes in the area.
• Needs utility extensions. utilities. • This is a very large area.
• Needs utility extensions if it is to
Industrial Area #5 Industrial Area #9 be sewered.
Advantages: Advantages:
• Level land. • Visibility from I-90. Single Family Residential Area #13
• Access to I-90. • Reasonably level Land. Advantages:
• Visibility from I-90. Disadvantages: • Adjacent to existing residential
• Adjacent to the railroad • Several residential units in the uses.
Disadvantages: area. • Some level Land.
• Needs utility extensions. • Not convenient ally accessible to • Aesthetically desirable land.
• Many residential uses in the area. I-90. Would benefit with better
access to I-90. Disadvantages:
Industrial Area #6 • Needs utility extension. • Some steep slopes in the area.
Advantages: • Needs utility extensions if it is to
• Level land. Institutional Area #10 be sewered.
• Good access to STH 16. Advantages:
Disadvantages: • Expandable Site
• Needs utility extensions. • Significant infrastructure.
• Would be adjacent to a residential • Desirable location.
area. • County Ownership.
• Access to I-90 is through a corner • Served by City Sewer
of the City. Disadvantages:
• The County does provide their
water supply on site. It is not part
of a larger system.

54
 Chapter 6 – Land Use Alternatives

Co Hwy
St

Rd
Hw

ly
ef
y

Fir
27
Fillmore Ave

yB
Co Hw

Co Hwy I
Fernwood Ave

Co Hwy Q
ral Av
33 Fede
34 35 36

Fedora Rd
1
Privat
e Roa

Co Hwy B
Farm Co Hwy Q d
land
Ave
Gavel Ave

1
Co Hwy I

y2
Fieldcrest Rd

Hw
St
Grandview Rd
Gin
ge

Gazebo Rd
r
Garla
nd Av
e 4 3 2 1
Rd

Garnett Ave Gardener Ave

I
y
Co Hwy Q

Hw
21

Co Hwy B
wy

Co
H
St
Gardener Ave

Old
St H

Gemini Rd
Gasl
10 13
wy
21

ight
2

St Hwy 27
10 Ave
9 11 12 General Ave

2 1
Co Hwy BC

wy
Co
Hw

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Av
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Town of Sparta Co Hwy BC
e
Av

Co
d
oo
Town of Angelo

H
wy
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ze

A
Ha
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16 15 14 St Hwy 21
13
8
N Water St
North St Pine St
Franklin St

11A
Black River St

Main St e
Av
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Jefferson Ave ke Hardwood Rd Harvest Ave
au

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ilw y1
6

st
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Hammer Rd

M Hw

Av
St
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Wisconsin Ave
City of Sparta
e
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Herald Ave
Ave Walrath St Ha
nsin rm
Wisco
St Hwy 27

on
y

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Av
e
St uke

e
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22 23 24
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e
St H Av
a

Tra
ilw

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n
ve
Ha
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S Water St

St
Igloo Rd

H
wy
71
St Hwy 27

1 on
Rd
Im
ac
Av
e

Fort McCoy
Hammer Rd

Av

Imperial Rd
I-90

28 27 Iband Ave
26 25
Rd
mer
Ham
Ideal Rd

Im
pa

4
Im
la

pe
Av

I-90 ria
e

lR

Iberia Ave
Iberia
Ave
5 Icon Ave
d
Igloo Rd
Icebox Rd

Inspiration Ave
Janus Ave

33 34 35
3 36
Idaho Rd

Jackpot Ave Janus Ave

Private Road
Idea
l Rd

Jackpot Ave

Jefferson Rd
St Hwy 27

St H

Town of Wells
Javelin Rd
wy
71

Town of Leon
Jamboree Rd

Jargon Ave Jancing Ave

Jaguar Ave
Jade Rd

Map Features
Road Sparta, Wisconsin
Property boundary July 17, 2002
Railroad
Surface water
Municipal boundary
Fort McCoy boundary
Planning area boundary for City of Sparta
Section corner
33 Section number
Map 1 Developmental Concepts

Map Legend
Prepared by Mid-America Planning Services, Inc.

1 Open Space/Environmental Corridor

2–3 Park
4–9 Industrial
10–11A Institutional
12–13 Single Family Residential

55
Chapter 6 – Land Use Alternatives

Co Hwy
St

Rd
Hw

efly
y2

Fir
7
Fillmore Ave

yB
Co Hw

Co Hwy I
Fernwood Ave

Co Hwy Q
ral Av
33 Fede
34 35 36

Fedora Rd
Priva
te Roa

Co Hwy B
Farm Co Hwy Q d
land
Ave
Gavel Ave

1
Co Hwy I

y2
Fieldcrest Rd

Hw
St
Grandview Rd
Gin
ge

Gazebo Rd
rR
Garla
nd Ave 4 3 2 1 d

Garnett Ave Gardener Ave

I
y
Co Hwy Q

Hw
21

Co Hwy B
y

Co
Hw
St
Gardener Ave

Old
St H

Gemini Rd
Gasl

wy
21
ight

St Hwy 27
Ave

9 10 11 12 General Ave

21
Co Hwy BC

wy
Co
H

H
wy
A

St
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e
Av
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oo
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16 17

elw
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C

Town of Sparta Co Hwy BC 15 Av

e

14

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d
oo
Town of Angelo

Hw
lw

y
ze

A
Ha
Montgomery St
16 15 14 St Hwy 21
13
N Water St

North St Pine St
Franklin St

20
Black River St

Main St e
Av
I-90
E Oak St e
Jefferson Ave ke Hardwood Rd Harvest Ave
au
Ea

ilw 16

City of Sparta19
s

St Hwy 16 y

21
Hammer Rd

M
tA

Hw
St
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ve

Wisconsin Ave
Hanover Rd

Herald Ave
Ave Walrath St Ha
nsin rm
Wisco
St Hwy 27

on
y
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Av
e
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e
21 wy 16
22 23 24
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e
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a

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nd
ve
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S Water St

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Igloo Rd

Hw
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Av
Rd ac
Fort McCoy
29 on Im
Hammer Rd

Av
Imperial Rd

23 I-90

28 27 Iband Ave
26 25
Rd
mer
Ham
Ideal Rd

Im
pa

Im
la

22
pe
Av

I-90 r ial
e

Ave Rd
Iberia
Iberia Ave Icon Ave
Igloo Rd
Icebox Rd

Inspiration Ave

27
Janus Ave

28
33 34 35 36
Idaho Rd

Jackpot Ave Janus Ave

Private Road
Idea
l

Jackpot Ave
Rd

Jefferson Rd
St Hwy 27

St H

Town of Wells
Javelin Rd
wy
71

Town of Leon
Jamboree Rd

Jargon Ave Jancing Ave

Jaguar Ave
Jade Rd

Map Features
Road Sparta, Wisconsin
Property boundary July 17, 2002
Railroad
Surface water
Municipal boundary
Fort McCoy boundary
Planning area boundary for City of Sparta
Section corner
33 Section number
Map 2 Developmental Concepts

Map Legend
Prepared by Mid-America Planning Services, Inc.

14–18 Multi Family Residential

19 Historical Downtown
20–24 Highway Commercial
25 Park
26–29 Single Family Residential

56
 Chapter 6 – Land Use Alternatives

Echelon Rd
32 Echo Rd

19 20 21 22 23 24

Fairw
Co
Hw

ay Rd
yQ

Fa 30 Town of La Fayette

Ave
nta
il A

Co Hwy B
her
ve

Festival Ave
Finch Ave

Feat
30 29 il A
28
ve 27 26 25
nta
Fa

St
H

Rd
wy

y
27

efl
Fir
Fillmore Ave

yB
on R

Co Hw
Falc

Co Hwy I
Fernwood Ave

y BB
Co Hw
e

Co Hwy Q
ral Av
31 32 33 Fede
34 35 36
Fa
llo
w

Fedora Rd
Av

32
e

Co Hwy B
Farm Co Hwy Q
land
Ave
Rd

Gavel Ave Co Hwy I

Fieldcrest Rd
n
lco
Fa

31

Grandview Rd
Fairw

Gin
ge
ay R
La Crosse County

rR
6 5
Garla
nd 4 3 2 Gazebo Rd
1
Private Road
d
Monroe County

Ave
d

Co Hwy BC Garnett Ave Gardener Ave

I
y
Co Hwy Q

Hw
21

Co Hwy B
y

Co
Hw
St
Gardener Ave
Co
Hw

Old
y

St H
BC

Gas
wy
21
y BC

light

St Hwy 27
Co Hw

Ave

8 9 10 11 12 General Ave

1
7

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Hw
Hw
y A

St
Co Hwy B

e
Av
d
oo
Co

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Hw Airport Rd

az
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H
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Town of Sparta
Hagar Rd

e
Av

Co
d
oo
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Hw
lw

y
ze

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18 17 16 15 14 13
Hacksaw Rd

Hamilton

32 Hardwood Rd
I-90
Ave

6
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ek Rd

Hammer Rd

Hw
St
City of Sparta
Hanover Rd
Big Cre

Halley Ave

Private Road
Co
Hw
19 yB
C 20 mle
tA
ve
21 St Hw
y 16
22 23 24 a le
Av
e

Ha nd
ve
Ha
St Hwy 16

St
Igloo Rd
Icarus Rd

H
wy
71
y 16
St Hw
e
Av
Im
ac
Fort McCoy
Hammer Rd

Imperial Rd
32 30 29 28
mer
Rd
Iban
d Av
e
27 Iband Ave
26 25
Ham
Ideal Rd

Im
pa

Im
la

pe
Av

I-90 ria
e

e lR
Ibe ria Av d
Iberia Ave Icon Ave
Igloo Rd
Ideal Rd
Iberia Ave

Icebox Rd

Inspiration Ave
Janus Ave

Langrehr Rd I-90
31 32 33 34 35 36
Idaho Rd

Jackpot Ave Jackpot Ave Janus Ave

Jackson Rd

Idea
l Rd

Jackpot Ave

Jefferson Rd
St Hwy 27

31
St H

Town of Wells
Javelin Rd
wy
71

Town of Leon
Jamboree Rd

Jargon Ave Jancing Ave

Kale Rd Jaguar Ave
Jade Rd

Ideal Rd
St Hwy 27

Jancing Ave
Ka

32
le
Rd

Map Features
Road Sparta, Wisconsin
Property boundary July 17, 2002
Railroad
Surface water
Municipal boundary
Fort McCoy boundary
Planning area boundary for City of Sparta
Section corner
33 Section number
Map 3 Developmental Concepts

Map Legend
Prepared by Mid-America Planning Services, Inc.

30 Agriculture, Woodlands, and Estate Residential

31 Agriculture and Woodlands
32 Open Space

These images are courtesy of Mid-America Planning Services, Inc. (MAPS)

57
58
 Chapter

Preparing a Future Land

Use Map
Included in this chapter:
■
■
■
■
Future Land Use Map: A Definition
Producing a Future Land Use Map
Designating Smart Growth Areas
Examples of Future Land Use Maps
7
Introduction • Current land use
• Future land use
After completing several components of • Productive agricultural soils
the land use element including the land use • Natural limitations for building site
inventory, current land use map and land development
use alternatives or scenarios, it is now time • Floodplains
to draft the future land use map. The future • Wetlands and other environmentally
land use map is a process of finalizing these sensitive lands
activities and compiling the information into • Boundaries of service areas of public
a visual format. utilities
• Boundaries of service areas of community
As mentioned in Chapter 3, a current land use facilities
map is required as part of the comprehensive • General location of future land uses by
plan. Also, a future land use map is required net density or other classifications
as described in Wis. Stat. Section 66.1001.
Below is a list of required information to
be included in a series of maps within the
comprehensive plan:
59
Chapter 7 – Preparing a Future Land Use Map

Future Land Use Map: A Definition map as used in the current land use map.
As an example, to create a future land use
The future land use map is a community’s map begin with the base map, and review
visual guide to future planning. The future all of the information and maps created
land use map should bring together most if throughout the planning process. Begin with
not all of the elements of the comprehensive transferring to the future land use map areas
plan such as natural resources, economic that cannot be developed, such as water and
development, housing and transportation. It steep slopes; next consider areas that might
is a map of what the community wants to be difficult to develop or are unique to the
have happen; it is not a prediction. community, such as flood plains or wetlands.
Next, if there is interest in preserving
The future land use map is not an official map agricultural and forestry in the community,
nor is it a zoning map. Table 5 describes the identify concentrations of prime soils and
differences between these three maps. productive forestry areas. Then consider
the existing residential, commercial and
industrial uses and the general development
Producing a Future Land Use Map trends in the community. On the map identify
where it should be encouraged in the future.
The community should assess the various Consider existing utilities and facilities as
scenarios and review the drafted goals, you complete this step, such as roads, sewer
objectives and policies when creating the and water, and emergency services. In the
future land use map. The future land use end, you should have a map that is built on
map should be created similarly to, and be each step of the planning process.
consistent with, the current land use map.
It is advisable to use the same land use The future land use map is a milestone in the
classification system for the future land use planning process and is the most important
map created. It is critical to engage the

Table 5
Comparison of Three Different Maps
Future Land Use Map Official Map Zoning Map
Comprehensive Plan Yes No No
Requirement
Wisconsin Statutes 66.1001(2)(h) 62.23(6) 59.69(5); 60.61(4);
(Chapters, sections) 62.23(7)
Local Government By ordinance as part of By ordinance or resolution By ordinance as part of
Adopts comprehensive plan zoning ordinance
Parcel-based No Yes No
Displays General land use Streets, highways, Zoning districts
categories parkways, railroad right-of-
ways, historic districts
Use Visual guide for the Establish and preserve Designate height, bulk,
community location of streets, and use of land
highways, parks,
waterways

60
 Chapter 7 – Preparing a Future Land Use Map

public in a review of this map. Often at this planning grant funds from the State’s
stage in the planning process an open house Department of Administration, you may
type meeting will be held. choose to include these areas as part of your
community’s future land use map if they
The future land use map may or may not exist.
contain “hard” boundary lines between
categories. Different techniques may be used
to show “soft” boundary lines; for example
the line maybe drawn as a squiggly line or
colors may be blurred together.

Future land use mapping is often done

interactively by community committee
members. They use existing land use maps
and markers to draw in the locations of future
uses. Some communities are beginning to
rely on GIS to help allocate future uses. See
Figures 10 and 11 on pages 60 and 61 for
examples of future land use maps.

Designating Smart Growth Areas

Wisconsin Statutes section 16.965 defines a

smart growth area as “an area that will enable
the development and redevelopment of lands
with existing infrastructure and municipal,
state and utility services, where practicable,
or that will encourage efficient development
patterns that are both contiguous to existing
development and at densities which have
relatively low municipal, state governmental
and utility costs.” Smart growth areas are
generally drawn on the future land use map.

Designating “smart growth areas” is not

required under the comprehensive planning
law, Wis. Stats. s. 66.1001.

Although the designation of smart

growth areas is only a requirement when
communities receive for a comprehensive
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Chapter 7 – Preparing a Future Land Use Map

Examples of Future Land Use Maps

Below and on the facing page are two examples of future land use maps.

Figure 10: Town of Dane Planned Land Use Map

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 Chapter 7 – Preparing a Future Land Use Map

Figure 11: Town of Bradley Planned Land Use Map

63
64
 Chapter

Implementation Tools

Included in this chapter:

■
■
■
■
Roles and Responsibilities for Plan Implementation
Types of Implementation Tools
Developing a Strategy
Checking for Consistency
8
Introduction
One of the recurring concerns expressed
Your community has completed a future by individuals following a comprehensive
land use map as part of the comprehensive planning process is whether or not the plan
planning process. Although you have will actually be implemented and not just “sit
successfully accomplished a major task on the shelf.” The implementation of a future
within the comprehensive planning process, land use map can become complicated when
there are still several equally important one considers the personal, institutional,
components to complete. The focus of and political barriers to action, as well as
this chapter will be to assist with the physical, social and psychological changes
identification and selection of implementation that may occur over the span of time during
tools that will help put into practice your which a plan is developed, adopted, and
comprehensive plan in general, and the implemented. In addition to these challenges,
land use element and future land use map the various processes of municipal planning,
specifically. This is, in essence, “where the programming and budgeting tend to be out of
rubber hits the road!” sync with one another and the opportunities

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Chapter 8 – Implementation Tools

that exist within the real world. In spite of and local building codes. Plan commissions
these challenges, the reality is that many parts are involved in three types of governmental
of comprehensive plans are implemented. decision-making:
Legislative decisions – recommending
This chapter will discuss the role of plan actions to the governing body regarding
commissioners and other community actors adopting or amending plans, ordinances,
in implementing the land use element of or other implementation tools.
the comprehensive plan. It will provide Quasi-judicial decisions – application
an overview of the various types of of local ordinances where decision-
implementation tools available (including making authority has been delegated
regulatory, incentive-based, voluntary to the commission by the governing
and non-regulatory), and describe some body. For example, plan commissions
common tools in each category. Next, the may be given the power to hear zoning
chapter will outline a community resource conditional use permits, plat approvals,
assessment to be performed when developing or administrative appeals and variances
an implementation strategy. Finally, it for ordinances not adopted under
will define an evaluation process to ensure comprehensive zoning authority (e.g.,
consistency between the land use element and land division).
the other elements of a comprehensive plan. Administrative decisions – individual
commissioners may perform functions
of an administrative official. For
Roles and Responsibilities for Plan example, commissions may play an
Implementation active role in the management of the
local planning and zoning department
Role of Local Governing Bodies and oversee its personnel. In smaller
Adoption of a community plan and communities, commissions may evaluate
regulations used to implement the plan, such development applications and issue
as zoning or development standards, are permits.
legislative functions reserved by state law for Distinguishing among these three types of
local governing bodies such as county boards, legal authority is important because the type
town boards, village boards and city councils. of decision determines the rules that apply to
Planning and zoning powers are granted to the decision-making process and the degree
counties, towns, villages, and cities (sections of discretion available to decision-makers.
59.69, 60.61, 60.62, 61.35, and 62.23, Wis.
Stats.) mainly for the purpose of promoting Cities, villages and towns that have
health, safety and the general welfare of the adopted village powers may establish
community. plan commissions by ordinance (sections
62.23(1), 61.35, and 60.22(3), Wis. Stats).
Role of Plan Commissions Counties have the option to establish either
Plan commissions are central to local plan a plan commission or a planning and zoning
making and the implementation of various committee composed of county board
land use tools such as official maps, local members (section 59.69, Wis. Stats). A
subdivision ordinances, zoning ordinances model ordinance for establishing a plan
commission is available from the UW-
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 Chapter 8 – Implementation Tools

Extension Local Government Center (www. Types of Implementation Tools

uwex.edu/lgc/).
A variety of plan implementation
Role of Professionals tools is available to implement a
Professional staff, including local planning community’s comprehensive plan.
and zoning staff, paid consultants, legal While some communities are drawn to
counsel and Extension educators provide traditional regulatory approaches to plan
citizens, plan commissioners and local implementation, others may wish to explore
governing bodies with educational more flexible options based on education,
and technical support related to plan incentives and voluntary compliance.
implementation. They are typically involved Generally, there are four categories of
in a wide range of activities from drafting implementation tools, distinguished by the
ordinances and conducting technical or degree of regulatory power associated with
feasibility studies to facilitating meetings or each: 1) Non-regulatory, 2) Voluntary, 3)
hearings and providing general educational Incentive-based, and 4) Regulatory. The
support. following paragraphs provide an overview of
each category along with examples of each.
Role of Citizens Table 6 provides additional examples.
Opportunities for public participation and
education throughout the planning process Non-regulatory
make it more likely that citizens will endorse There are a variety of plan implementation
the plan and support its implementation. tools that are attractive to communities
Citizen leaders that emerge throughout the precisely because they do not involve
process are good candidates for spearheading regulation. One of the most important yet
new programs or assisting with a variety often overlooked implementation tools is
of plan implementation programs, such as the use of education. Efforts to inform
local conservation organizations, citizen and involve citizens and local decision-
monitoring programs, and related educational makers throughout the planning process
efforts. generally results in plans that are more

Table 6
Sample Implementation Tools

Non-regulatory Voluntary Incentive-Based Regulatory

• Education • Conservation • Transfer of • Zoning
• Grant procurement easement development rights • Land division or
• Hire planning staff or • Purchase of • Density bonus subdivision control
zoning administrator development • Tax increment • Site plan review
• Detailed or special- rights financing • Design standards
purpose planning • Outright donation • Other tax incentives (i.e., landscaping or
(i.e., neighborhood or of land • Shared services signage)
corridor plan) • Revenue sharing • Performance
• Public investment standards
(i.e., land acquisition • Interim regulation
or utility expansion) (i.e., moratoria)
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Chapter 8 – Implementation Tools

reflective of community desires and are limit future development on their property.
easier to implement. Education designed to It is a voluntary legal agreement between
accompany other plan implementation tools is the landowner and a public agency or
also likely to increase the rate of acceptance, nonprofit organization. The landowner
participation and overall success of these retains ownership and the right to use the
tools. Aside from education, communities land according to the terms outlined in the
may also opt to utilize other non-regulatory agreement. Public access may be provided,
tools, either singly or in combination but is not required. Conservation easements
with other tools. For instance, following are occasionally purchased, but frequently
completion of a comprehensive plan, some donated. Provided that certain conditions are
communities may identify a need to prepare met, donated easements may be eligible for
additional plans or studies examining specific income, estate and/or property tax benefits.
resources, issues or locations of concern.
Most communities will prepare a budget or An outside party such as a land trust or unit
capital improvement plan outlining how to of local government is needed to monitor
fund various plan implementation programs and maintain the easement. The landowner
over the next one to five years. Infrastructure continues to bear all costs and liabilities
upgrades and land acquisition may be among related to ownership and maintenance of
those items funded. Finally, as communities the property, unless otherwise negotiated
contemplate how to fund and staff new within the agreement. The government or
programs they may need to participate in organization in charge of overseeing the
grant writing or hire new planning and zoning easement regularly monitors the property
staff. These examples are not inclusive but to ensure compliance with the terms of
do provide some introduction to the many the easement but typically does not have
types of non-regulatory tools available. other management responsibilities related
to the property. For more information on
Voluntary Tools conservation easements refer to Chapter 23 of
Voluntary tools target awareness building the Wisconsin Statutes or visit the Gathering
and behavior change based on one’s intrinsic Waters website, a coalition of Wisconsin land
motivation. A healthy, vibrant community trusts (www.gatheringwaters.org/).
relies upon its residents to do those things
that would benefit their community. Common Conservation easements serve as the
tools include conservation easements and principal legal mechanism used to limit
purchase of development rights. Increasing future development of land in a Purchase of
awareness about land conservation and Development Rights (PDR) or Transfer of
encouraging individuals to participate on a Development Rights (TDR) program. These
voluntary basis is a long-term effort needed two programs are briefly discussed below.
in every community to ensure better land use
practices at an individual level. Purchase of Development Rights (PDR) - A
voluntary program in which a landowner
Conservation Easement – A common sells the development rights of his or her land
tool used across the nation, conservation to a local unit of government or qualified
easements allow landowners to permanently organization. A conservation easement is

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 Chapter 8 – Implementation Tools

placed on the land and recorded with the title “sending areas” where land conservation is
to permanently limit development on the sought and one or more “receiving areas”
land. where development of property is desired
and can be serviced properly. The main goals
When a local unit of government or qualified of the program are to protect the natural,
organization such as a land trust makes an scenic, or agricultural qualities of land, while
offer to a landowner to buy the development compensating landowners in the sending
rights of a parcel, the landowner can areas for their development rights.
negotiate price and conditions, and may
accept or decline the offer. The amount Local units of government are allowed great
of compensation received by a landowner flexibility in designing a TDR program,
is generally equivalent to the value of the including goals, timing, reimbursement, and
right to develop the land, which is the density and type of development. When
difference between the appraised value creating a TDR program in Wisconsin,
for development and the appraised value all procedures required for adopting and
for agriculture or conservation. Once an amending local ordinances or laws, including
agreement is reached between the buyer and provisions for notice and public hearing, must
seller, the conservation easement is recorded be followed.
with the deed ensuring the parcel will not
be developed in perpetuity. If and when the Density Bonus - Allows a parcel to
property is sold, the development restrictions accommodate additional building space
apply to all subsequent landowners. A or additional units beyond the maximum
leading organization actively involved in for which the parcel is zoned, usually in
purchase of development rights for prime exchange for the preservation of an amenity
farmland is the American Farmland Trust at the same site or at another location. For
(www.farmland.org/). example, landowners may be allowed to
build at a higher density than permitted in
Incentive-Based Tools the zoning district if they agree to preserve
These techniques rely upon the use of and maintain open space, consolidate public
financial rewards, directly or indirectly, to services, or purchase development rights
encourage development that would achieve or easements in sensitive areas located
community goals. Incentive-based tools elsewhere in the community.
are becoming popular for encouraging
landowners and developers to conserve open In most instances, the use of bonus and
space, develop away from sensitive areas and incentive zoning techniques must be tied to
at a higher density. Some examples of these a site plan approval process to assure that
tools include transfer of development rights the granting of the bonus does not have an
and density bonuses. adverse effect on adjacent properties in the
zoning district. This sort of tool can be tied
Transfer of Development Rights (TDR) - A to development agreements ensuring that
program that creates a market for buying property rights and density-protected areas
and selling the rights to develop property. remain valid if regulatory changes occur. In
To implement a TDR program, the local addition, this tool may be combined with
governing body must identify one or more other incentives for the developer such as
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Chapter 8 – Implementation Tools

permit fee waivers, expedited permitting use districts and describes what is permitted
processes, local financial assistance, among within each district, and a map that depicts
others. the location of these districts throughout a
community. See Figure 12, Zoning Map
Regulatory Tools Example. To determine what can be done
Regulation is the most common tool used by with a property, an individual first views the
local governments when it comes to land use zoning map to identify a property’s zoning,
and management. Regulatory tools provide and then reads the text to identify permitted
clear provisions about what can and cannot uses and other pertinent regulations. Zoning
be done, but may lack flexibility in dealing ordinances must also contain procedures
with unique cases. Common examples of to amend the zoning text and map, seek a
regulatory tools include zoning and land variance or conditional use, or appeal an
division regulations. administrative decision.

Zoning - The first idea that comes to Figure 12: Zoning Map Example
someone’s mind when asked to consider
ways to implement a future land use map,
or for that matter a comprehensive plan, is
some form of regulation, most commonly
a zoning ordinance. Because it is so
frequently utilized, many confuse the use of
zoning regulations to implement a plan with
planning itself. Zoning ordinances regulate
how a parcel of land in a community may be
used. They also may regulate the size and
shape of lots along with the density, height,
shape, bulk, and placement of structures.
General zoning power is granted to counties,
towns, cities, and villages to protect public
health, safety, and general well-being
(sections 59.69(5), 60.61, 60.62, 60.35 and
62.23(7), Wis. Stats.). The first use of zoning Map courtesy of Kevin Struck, UW-Extension

regulations in Wisconsin dates back to

Milwaukee in 1920, with many other cities Local communities decide whether to adopt
and villages following soon after. In 1929, general zoning, also known as comprehensive
the legislature authorized the use of zoning zoning. Wisconsin statutes, however, require
for rural areas as well, making Wisconsin the communities to administer certain types of
first state in the U.S. to have rural zoning. zoning as described below.
Shoreland zoning provides development
Zoning has become widely utilized and standards near waterways to protect
understood because it is relatively simple, water quality, aquatic and wildlife
inexpensive, and can cover a large geographic habitat, shore cover and natural scenic
area. Essentially, a zoning ordinance contains beauty. It is required of counties.
two components: text that identifies various Shoreland-wetland zoning generally
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 Chapter 8 – Implementation Tools

prohibits or severely restricts planning commission and recommended to

development in wetlands near the governing body for adoption. Developers
waterways. It has the same objectives in communities without a local land division
as shoreland zoning and is required of ordinance must comply with the minimum
counties, cities and villages that have standards laid out in Chapter 236 of the
received wetland maps from the state. Wisconsin Statutes, which focus mainly on
Floodplain zoning provides location and the process and logistical details of land
development standards to protect human division but do not address the effects of the
life, health and property from flooding. resulting land divisions on communities.
It is required of communities that have
been issued maps designating flood Local governing bodies (county boards,
prone areas. town boards, village boards and city
In addition, communities may opt to councils), with recommendations from
implement specialized forms of zoning such their respective planning commissions, are
as exclusive agricultural zoning, stormwater typically authorized to evaluate and approve
management zoning, extraterritorial zoning, the division of a parcel of land, subject to
and overlay zoning, to name a few. community standards and criteria. In some
cases, however, plan commissions have the
Land division and subdivision regulations final authority for land divisions.
– Another popular implementation tool
used extensively by communities is a land An alternative to conventional subdivision
division or subdivision ordinance. This regulation is the conservation subdivision.
type of regulation defines how a large parcel (See Figure 13 on page 70.) Conservation
of land is divided into smaller parcels for subdivisions direct the location of residential
development, and ensures the proper design dwellings on a parcel of land to protect open
of new developments including infrastructure spaces and sensitive areas. This allows for
such as roads, sidewalks, water, sewer, etc. dwelling units to be grouped or “clustered”
In addition, land division and subdivision on only a portion of a parcel, while the
regulations determine who is responsible for remainder of the site is preserved as open
financing and maintenance costs associated space, farmland, or as an environmentally or
with new developments. culturally sensitive area. Clustering of the
dwellings into a small area is made possible
Under Wisconsin law, any city, village, by reducing the individual lot sizes.
county, or town which has established a
planning agency may adopt a land division
ordinance governing the subdivision or other Developing a Strategy
division of land that is more restrictive than
the provisions in Chapter 236 of Wisconsin Typically, identifying and selecting plan
Statutes (section 236.45(2)(a), Wis. Stats.). implementation tools is accomplished
Public participation is recommended during iteratively throughout the planning process.
the design, review and adoption processes Tools that are best-suited to address a
associated with developing land division community’s needs naturally emerge when
regulations. Like zoning, land division identifying goals, objectives and policies for
regulations are primarily prepared by the
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Chapter 8 – Implementation Tools

Figure 13
A Comparison Between Conventional and Cluster or Conservation Subdivion Development

Source: SEWRPC. 2002. “Model Zoning Ordinance For Rural Cluster Development”

each of the elements. Most communities codes (shredded cheese), or official mapping
find that using a combination of plan (salad dressing), you begin to develop
implementation programs and initiatives something that is much more complete.
is better than using only one tool, say for
example, zoning. In this instance, it is After identifying a range of potential plan
helpful to think of the implementation of a implementation tools, tools should be
comprehensive plan much like a salad, with selected in a coordinated manner taking
zoning regulations acting as the lettuce. The into account the community’s available
lettuce by itself is nothing more than lettuce. resources and abilities. A community
However, when you begin to add land resource assessment, described below,
division regulations (tomatoes), development allows a community to assess its political,

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 Chapter 8 – Implementation Tools

fiscal, economic and social resources and implementation tool, tradeoffs involved
environment to determine which tools can be in selecting one tool over another, and an
realistically used in the community. understanding of those tools that are more
politically or socially acceptable to the
Community Resource Assessment local community. When selecting tools, it
The following is a sample list of questions is important to consider how each tool will
that you may want to ask to assist in mesh with other proposed tools as well as
assessing your community’s resources for existing regulations. If considered early on,
implementing a comprehensive plan. a community will have to give less thought
later to ensuring consistency between their
Who will be the primary individuals comprehensive plan and competing land use
involved with implementing the future land regulations. After prioritizing and selecting
use map and land use goals, objectives, tools, communities should outline a timeline
policies and programs? for implementation, funding sources, and
parties responsible for implementation and
Do those individuals have any personal monitoring.
stake in the final outcome?

To what degree were those individuals Checking for Consistency

involved in the planning process? Have
they bought into the final outcome? Once a community’s comprehensive plan
has been developed and adopted, the
Will the implementation strategies demand plan will serve as a central guide to the
additional funds or staffing to implement? future development of the community. To
If so, what is the likelihood that funding ensure local actions are consistent with the
and personnel will be provided? What is local comprehensive plan, the Wisconsin
a realistic timeframe for implementation Comprehensive Planning Law specifies that
given existing budget and staff constraints? “beginning on January 1, 2010, if a local
governmental unit engages in any of the
What is the expected outcome of each following actions, those actions shall be
strategy versus the expected demand consistent with that local governmental unit’s
on resources? In essence, what is the comprehensive plan” (section 66.1001(3),
expected rate of return? Wis. Stats.). Actions that must be consistent
include:
How strong was the community’s • Official mapping established or amended
involvement and support of the under s. 62.23 (6).
comprehensive plan, and more importantly • Local subdivision regulation under s.
the land use element of the plan? In 236.45 or 236.46.
essence, is there political support for the • County zoning ordinances enacted or
plan? amended under s. 59.69.
• City or village zoning ordinances enacted
After performing this assessment, you or amended under s. 62.23 (7).
should have some idea of the human • Town zoning ordinances enacted or
and financial costs associated with each
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Chapter 8 – Implementation Tools

amended under s. 60.61 or 60.62.

• Zoning of shorelands or wetlands in
shorelands under s. 59.692, 61.351 or
62.231.

Although the law does not require it, good

planning practice dictates that other land
use related actions be consistent with the
community’s comprehensive plan as well.

Communities are advised to consider these

consistency requirements long before
adopting the comprehensive plan. If
considered early, many inconsistencies can
be avoided. For example, a community could
use the text of the comprehensive plan to
explain timing and phasing issues not readily
depicted on their future land use map. If
the future land use map were to be used as a
basis for future zoning designations, and the
community wished to include a transition
zone between agricultural and residential
land, for instance, the text would explain how
and when that transition should occur.

Following adoption of the plan, local

governments will also be responsible for
ensuring that the actions outlined above
do not conflict with the provisions of their
plan. Consider, for example, a future
land use map that designates an area of a
community as woodlands, yet under current
zoning that area is zoned for industrial use.
When such inconsistencies exist, the local
government has the option of updating
their comprehensive plan or more likely,
of amending the regulation. When local
land use actions are not consistent with the
recommendations included in a community’s
comprehensive plan, those actions may be
subject to legal challenge following January
1, 2010. Additionally, the purpose and
function of the comprehensive plan will be
diminished.
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 Chapter

Monitoring and Future

Updates and Revisions
Included in this chapter:
■
■
■
The Importance of Monitoring Progress
Techniques to Monitor Your Plan
Updating the Land Use Plan
9
The Importance of Monitoring interested community members can track
Progress various activities over time. Although, it
is the primary responsibility of the plan
A part of good planning practice is commission and the elected officials to track
monitoring progress. One of the important plan accomplishments, others may also
aspects of setting goals, objectives, policies check its progress, including community
and programs is to be able to monitor staff persons such as zoning administrators
plan implementation. Tracking objectives or planners, and citizen groups. The idea is
is a way for your community to know to accomplish the objectives the community
whether it is successfully implementing the set for itself. The implementation element
comprehensive plan that your community requires “a mechanism to measure the
spent hundreds of hours and financial local governmental unit’s progress toward
resources to develop. In Chapter 5, we achieving all aspects of the comprehensive
advised that objectives, specifically, should plan.” Here is where the link is made
be written to be measurable. This means between the land use and implementation
that the planning commission and other elements.

75
Chapter 9 – Monitoring and Future Updates and Revisions

Techniques to Monitor Your Plan implementation). As community values

and conditions evolve over time, you may
Setting up a simple chart that includes goals, find that some goals, objectives, policies
objectives, policies and implementation and programs are no longer relevant. It is
activities, is one easy way to track progress. important that these be revised or replaced
Including a time line for action is also to better reflect current community values
important. Figure 14 on the following two and conditions. The update should take
pages is an excerpt of the progress chart used much less time than the comprehensive
by the Town and Village of Black Creek. planning process, but should include
public participation, especially if the plan
commission has determined that new goals,
Updating the Land Use Plan objectives, policies and programs are needed.

The implementation element of the

comprehensive planning law requires a
process for updating the comprehensive
plan. Statute 66.1001(2)(i) states “The
[implementation] element shall include a
process for updating the comprehensive
plan. A comprehensive plan under this
subsection shall be updated no less than
once every 10 years.” Although the land
use element will not include language that
applies to how it will be updated, it is a
good idea for the community to consider
the process of updating. It is likely that the
land use element will need major updating
whereas other elements may need only minor
adjustments. The need for major updates
stems from growth and change that many
communities have or are likely to experience.

TIP: Publishing the plan in a binder or web

format and using word processing software
makes it easy to make regular updates to the
comprehensive plan.

One process is to review systematically the

goals, objectives, policies and programs, to
determine which have been accomplished
(this should be straightforward if the plan
commission and/or others have monitored

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 Chapter 9 – Monitoring and Future Updates and Revisions

Figure 14: Example of Tracking Progress Through Charting

This example begins with a list of land use policies and shows a table that identifies each
objective, its related element, a partner, funding source, and timeline.

.CPF7UG#IGPFC
It is the policy of the Town and Village of Black Creek to:
ƒ Review all development proposals in accordance with this Comprehensive Plan. Decisions will be
based on the guidelines provided in the plan and further discussed in the Implementation Chapter.

ƒ Provide sidewalks, trails, and other pedestrian and cycling connections throughout the Village to
offer a walkable environment.

ƒ Build to the sidewalk to promote walkability.

ƒ Promote energy efficiency building and design practices by encouraging development that complies
with the Wisconsin Energy Star program or similar programs.

ƒ Create spaces throughout the community for citizens to be physically active (e.g. parks, trails,
sidewalks).

ƒ Make the front of new commercial and industrial buildings “permeable” (i.e., no blank walls, use
windows, doors, material changes and other amenities to keep the buildings interesting).

ƒ Prohibit parking lots in front of apartment buildings, unless on-street parking is provided.

ƒ Encourage infill and new development based on Traditional Neighborhood Design and New
Urbanism principals in the Village.

ƒ Improve connectivity by using grid-like patterns and using trails and sidewalks to make walking easy
and safe.

ƒ Seek to maintain the environmental features shown on the Future Land Use Maps by directing
development away from these areas.

LAND USE GOAL #1

Create a healthy, livable community that attracts quality residential and business development.
POTENTIAL
RELATED CHAMPION / MILESTONE
SUPPORTING OBJECTIVES FUNDING
ELEMENTS PARTNER DATE
SOURCE
1. Develop connectivity standards within the
Town and
subdivision and zoning chapters of the Town and
Land Use WisDOT Village 2009
Village ordinances to promote better connectivity
Budgets
though the community.
2. Review and revitalize local landscape ordinances to Town and
Economic Local Business
include illustrations and an information brochure to Village 2007
Development Community
make the ordinance more user-friendly. Budgets
3. Encourage mixed used developments that integrate
businesses/services (e.g. schools, offices, parks)
Land Use and housing in close proximity by revising the Developers Village Budget 2006
Village Zoning Ordinance to allow corner uses (e.g.
neighborhood activity centers).

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Chapter 9 – Monitoring and Future Updates and Revisions

LAND USE GOAL #2

Create a destination point for residents and visitors.
POTENTIAL
RELATED CHAMPION / MILESTONE
SUPPORTING OBJECTIVES FUNDING
ELEMENTS PARTNER DATE
SOURCE
1. Improve the Village of Black Creek downtown and Economic
adjacent gateways so that they may become a focal Development
Economic Downtown
point for quality development using tax incremental Committee & 2009
Development Businesses
financing, grants, and private investment. Chamber of
Commerce
Utilities & 2. Expand identification signage, directional signage, Economic
Downtown
Community historic street signage and lighting within the Village Development 2006
Businesses
Facilities to meet the needs of both motorists and pedestrians. Committee
3. Encourage economic redevelopment of the Village’s Economic
downtown through marketing, zoning, and other Development
Economic Downtown
incentives. Committee & 2007
Development Businesses
Chamber of
Commerce
4. Provide information kiosks to help direct visitors Economic
Utilities & through the community. Development
Downtown
Community Committee & 2007
Businesses
Facilities Chamber of
Commerce
5. Review model Traditional Neighborhood Design and
Economic
New Urbanism codes available from the UW-
Implementation Development Village Budget 2008
Extension and other organizations to consider
Committee
changes in the Village’s Zoning Code.
6. Create a Village design ordinance with specific Economic
Implementation standards for commercial, industrial and multiple Development Village Budget 2009
family residential developments. Committee

LAND USE GOAL #3

Protect the abundant and high quality natural resource areas to maintain the Town and Village’s natural atmosphere and community
character.
POTENTIAL
RELATED CHAMPION / MILESTONE
SUPPORTING OBJECTIVES FUNDING
ELEMENTS PARTNER DATE
SOURCE
Agricultural, Natural 1. Identify and map primary and secondary
& Cultural conservation areas in the Town using the maps from UW-Extension WDNR 2005
Resources this plan as a starting point.
2. Permit the development of cluster or conservation
Agricultural, Natural subdivisions in the Town to maintain environmental
& Cultural corridors for wildlife habitat, open scenic vistas from Town Board Town Budget 2006
Resources roadways, and to buffer the subdivision from nearby
agricultural areas.

Excerpt from the implementation chapter of the Town and Village of Black Creek, WI, comprehensive plan. OMNNI
Associates. Adopted March 2005.

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 Appendix

Land Use Planning

Principles A
The following principles may help guide the preparation of a map of desired future land uses.
The principles are grouped under several broad categories. This list is not exhaustive. There
may be additional issues and considerations that are particular to your community that you
may wish to add.

GENERAL LAND USE □ Accommodate daily services in a central

location or business district.
□ Separate incompatible uses, such as □ Locate institutional uses in areas to serve
industrial from residential, by locating as focal points for the community and,
them in different parts of the community where appropriate, support downtown or
or buffering them from each other. special district activities.
□ Consider potential “nuisances,” such □ Continue developing in areas where
as noises, light, smell, high volume existing development is already located
roadways and industrial uses. or where public services already exist
rather than developing new areas.

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Appendix A – Land Use Planning Principles

AGRICULTURAL, NATURAL AND □ Plan for multi-family developments in

CULTURAL RESOURCES parts of a city or village where streets
and sidewalks can handle the increased
□ Minimize development of the best amount of traffic generated by the project,
agricultural lands. where there are adequate parks, and
□ Discourage growth in natural areas like where the utility system and schools have
wetlands, steep slopes, floodplains, and sufficient capacity.
stream corridors. □ Within cities and villages and urban
□ Consider historic resources and towns, design new neighborhoods that are
archeological sites. located within walking distance of civic
□ Configure development relative spaces, churches, commercial uses and
to topographical constraints (e.g. jobs.
relatively flat areas are more suitable for □ Encourage small-scale retail and
commercial/industrial type uses whereas services to locate close to residential
rolling topography may be appropriate for neighborhoods.
some housing) □ Separate and buffer mainly residential
□ Capitalize on, but do not harm natural neighborhoods and schools from large-
amenities (like rivers, forested or wooded scale commercial and industrial areas.
areas, wetlands, etc). □ Preserve distinctive and attractive
□ Consider sustainability of future water entryways into the community. (i.e. how
supply and impacts of solid and liquid does the community wish to present itself
waste treatment and disposal. to visitors exiting the interstate - big box
□ Provide for existing water supply to be stores, strip development, etc.)
protected (wellhead protection).
□ Consider natural hazards such as bluff
stability along the lakes and Mississippi UTILITIES AND COMMUNITY
River and water related hazards such as FACILITIES
arsenic in the Fox Valley and radioactivity
in other areas. □ Maximize use of existing utility systems
and facilities before extending systems.
□ Avoid urban development in areas that
HOUSING AND NEIGHBORHOOD cannot be easily or economically served
DEVELOPMENT with municipal utilities.

□ Provide enough areas for housing to meet

future growth expectations. ECONOMIC DEVELOPMENT
□ In cities and villages and urban towns,
incorporate a mix of housing types, □ Particularly in cities and villages,
densities, and costs (single-family, multi- maintain a sufficient supply of
family, apartments, senior and affordable developable land for industrial and
housing). commercial land uses.
□ Distribute affordable housing throughout □ Focus planned expansion of larger
the community. commercial development in discrete areas

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 Appendix A – Land Use Planning Principles

on major roads.
□ Discourage continuous strip development
along long stretches of roads.
□ Consider the impact of future commercial
areas on the economic viability
of existing commercial areas like
downtowns.
□ Encourage commercial “infill”
development in areas where adequate
services are already in place.

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 Appendix

An Example of a Land Use

Element B
The following pages are an example of a land use element extracted from the Town and Village
of Black Creek Comprehensive Plan, as adopted by both communities in March 2005. The
document is available from www.omnni.com.

These pages are included with permission from OMNNI Associates, a planning, engineering,
architectures & environmental firm located in Appleton, Wisconsin.

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Appendix B – An Example Land Use Element

10.0 FUTURE LAND USE

Introduction
Land use is the central element of a comprehensive plan. Previous elements have discussed the
Town and Village’s projected population, housing, and economic growth; documented the need
for transportation improvements and other utilities and community facilities; and profiled Black
Creek’s natural resources. This element assesses land use trends by pulling together the
recommendations from the previous chapters.

This chapter concludes with 10-year and 20-year Future Land Use Maps. These maps illustrate
the goals, objectives, visions and policies expressed throughout this plan. More importantly, they
seek to reflect, to the greatest extent feasible, the desires, expectations and demands of residents
and landowners in the Town and Village of Black Creek.

Land Use Vision

In 2025, Residents of the Town and Village of Black Creek take pride in the community’s small town
atmosphere, high-quality and diverse housing choices, schools, parks and services. Compact
Village development patterns allow residents to easily walk to places of interest (e.g. stores,
schools, parks, downtown). The farmland and natural areas of the Town support the agricultural
economy, maintain important wildlife habitat, and keep Town taxes low. The Town and Village have
an established industrial development area that takes advantage of its proximity to important rail
and highway corridors and its central location between Appleton and Green Bay. Quality industrial
and business park space brings new development to the area at a steady pace.

Of the 14 local planning goals described in the Comprehensive Planning Law, Black Creek
believes that the goals listed below specifically relate to planning for land use:
• Promotion of the redevelopment of lands with existing infrastructure and public services
and the maintenance and rehabilitation of existing residential, commercial and industrial
structures.
• Encouragement of neighborhood designs that support a range of transportation choices.
• Protection of natural areas, including wetlands, wildlife habitats, woodlands, open space
and ground water resources.
• Protection of environmentally sensitive areas and productive farmland areas.
• Encouragement of land uses, densities and regulations that promote efficient
development patterns and relatively low municipal, state governmental and utility costs.
• Providing adequate infrastructure and public services and an adequate supply of
developable land to meet existing and future market demand for residential, commercial
and industrial uses.
• Balancing individual property rights with community interests and goals.
• Planning and development of land uses that create or preserve varied and unique urban
and rural communities.

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Background
The Black Creek planning process was initiated with an extensive vision development effort and
review of the historic and existing population characteristics. This information is in Chapters 1
and 2. From there, the Town and Village worked together to study current conditions and future
needs related to housing (Chapter 3), transportation (Chapter 4), utilities and community facilities
(Chapter 6), and economic development (Chapter 5). The Town and Village also examined the
natural environment and agricultural considerations in Chapter 7. Finally, existing land use
patterns and regulations were considered in the previous chapter.

A Healthy and Active Black Creek in 20251

In the mid-1990s, public health experts began to focus their attention on the extent to which the
built environment can either help or hinder the public’s ability to become and stay healthy. These
experts recognized that many of the community planning and design tools that have been used to
implement “smart growth” objectives – bicycle and pedestrian planning, mixing land uses,
broadening transportation options, and encouraging compact form – may also be creating
communities where people could be physically active on
a regular basis. What is a Planned Unit Development (PUD)?
A PUD is a development approach whereby a
parcel of land is developed as a single unit,
The new focus on the relationship between community rather than as individual lots, with design
design and physical activity was sparked by soaring rates flexibility from traditional siting regulations (such
of obesity nationwide, a trend that has been widely as side yards, setbacks, and height limitations)
reported in the popular media. As rates of obesity, heart or land use restrictions (such as prohibitions
disease and stroke have climbed steadily in the last three against mixing land uses within a development).
decades, health experts realized that long-standing The greater flexibility in combining various land
approaches aimed at getting people to modify their uses makes it possible to achieve certain
eating habits and improve their cardiovascular health economics in construction, as well as the
were only modestly effective. Urban sprawl, which is preservation of open space and the inclusion of
facilitated in large part by Euclidean Zoning2, traditional many amenities (e.g. trails, landscaping,
subdivision standards, and poor street connectivity, has including a mix of housing types in a single
become commonplace over the past 30 years. The sharp development). PUDs are also used to allow
separation of land uses, which contributes to urban infill development in downtown and hamlet
sprawl, is now recognized as one of several hindrances areas that include small lot sizes that cannot
to communities’ efforts to create healthy, walkable confirm to modern setback requirements.
neighborhoods. The separation of land uses and larger
lots discourages walking and promotes a sedentary Properties zoned PUD, permit development as
lifestyle where the public is largely dependent on private is specifically depicted on plans approved in the
vehicles to meet their transportation needs. Likewise, process of zoning that lot or tract. This gives
poor street connectivity results in isolated, single-use the community a clear picture of exactly what is
subdivisions that have limited direct street or pedestrian being approved. These plans should include
connections to nearby schools, shopping or other renderings of the building design and
destinations. landscaping.

1
Section includes excerpts from Zoning Practice, Issue No. 6: Physical Activity, June 2004.
2
Euclidean Zoning is zoning that separates land uses by type. The name is in reference to the 1926 U.S.
Supreme Court Decision Euclid vs. Ambler realty that established the foundation for zoning in the U.S.
Mixed-use development patterns offer an alternative to Euclidean Zoning approaches.
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“Smart growth” calls for more mixed-use developments and districts. To be possible in Black
Creek, this will either require the approval of a complicated pattern of zoning, the creation of new
zoning districts, or the use of the existing Planned Unit Development District in the Village’s
Zoning Code (see box on previous page).

There are several things the Village of Black Creek can do to support a healthy community with
neighborhoods where residents have more opportunity to be active. This chapter seeks to define
those approaches through New Urbanism, Traditional Neighborhood Design, and other tools like:
ƒ Increasing development densities;
ƒ Requiring sidewalks and trails in new developments;
ƒ Retrofitting already developed areas with sidewalks, trails, and bike paths;
ƒ Linking open spaces; and
ƒ Requiring street connectivity.

Understanding Development Desires

In order to understand desired development in and around the Town and Village, residents were
provided a variety of opportunities to participate in the planning program. Four activities were
particularly instrumental in understanding local development desires and expectations:

1. SWOT, Vision & Value Exercises (Summer 2003)

2. Town Community Survey (Summer 2004)
3. Cognitive Mapping Exercise (July 2004)
4. Visual Preference Survey (July 2004)

SWOT, VISION & VALUE EXERCISES

At the early public planning meetings, residents were asked to participate in a series of exercises
designed to solicit ideas about important local values and the Town and Village’s strengths and
weaknesses. Residents were also asked to participate in a visioning exercise to understand their
perspective about desired future conditions. These efforts provided a general guide for the
planning program. They established a framework for appreciating local resident concerns and
expectations of the future. The community strengths, weaknesses, opportunities, threats and
values identified by residents are detailed in Chapters 1 and 2. Visions are presented for each
element.

COMMUNITY SURVEY RESULTS

Throughout this plan the results of the Town’s community survey are highlighted. The complete
results are also provided in the appendix. The survey was mailed in June 2004 and had a 40%
response rate (435 surveys mailed and 175 were returned).

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The responses provided the following information:

ƒ 85% of respondents were satisfied or very satisfied with the Town of Black Creek as a
place to live.
ƒ The rural/country atmosphere and the sense of safety/security were the two most
important characteristics of the Town.
ƒ 75% of respondents indicated farmland preservation was important or very important.
ƒ Town survey respondents did not favor additional alternative housing choices within the
Town (e.g. duplexes, senior housing, condominiums, townhomes, etc.).
ƒ With respect to recreational choices, respondents desired trails, areas for scenic
enjoyment, hunting areas and fishing areas.
ƒ Respondents indicated they would like to see new restaurants, childcare facilities and
office uses. Resident were not interested in seeing shopping centers, convenience stores,
or gas stations develop in the Town.
ƒ When asked what type of industrial development should be encouraged or discouraged,
respondents encouraged agriculture-related businesses and manufacturing uses and
discouraged large-scale livestock operations and mineral extraction uses.
ƒ For any non-residential uses (e.g. commercial, industrial), survey respondents indicated
these uses should locate near existing developments.

Included in the appendix is a Collective Survey Results Map. That map is a composite of the
survey respondents’ illustrations on a map included in the survey to show where development is
desired. This activity is very similar to the Cognitive Mapping Exercise described below. The
recommendations from that map are consistent with the Future Land Use Maps included in this
chapter. However, the Collective Survey Results Map shows additional areas for development
that are more consistent with needs over a 30 – 50 year period – beyond the scope of this plan.
Nevertheless, that map is included in this document as a tool to understand long-term
development desires. The map may be particularly useful after the STH 47/CTH A interchange is
completed.

COGNITIVE MAPPING

On July 6, 2004, the Town and Village hosted a special public meeting to allow residents to
participate in a cognitive mapping exercise. Cognitive mapping is a planning tool used to
determine desired future development. Cognitive mapping is two-part process. Participants first
have the opportunity to create an Attitude Map to express their ideas about what areas of the
Town are attractive and unattractive. These maps also indicate important local travel routes and
places that have special meaning. A Composite Attitude Map is provided on the next page. This
map represents consistent patterns and ideas represented on the maps prepared by individual
participants. It is not a direct translation of any single map created during the exercise.

Next, participants had the opportunity to develop individual Future Land Use Maps based on
their ideas, perceptions, experiences and beliefs. A copy of the Composite Future Land Use Map
based on the individual maps created is provided in this chapter.

The Town of Black Creek Survey also included a map that allowed residents to indicate the
locations where they would most like to see new development. The results are included in the
appendix.

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Appendix B – An Example Land Use Element

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Appendix B – An Example Land Use Element

VISUAL PREFERENCE SURVEY

On July 6, 2004, during the same evening the cognitive mapping exercise was facilitated,
residents also had the opportunity to complete a visual preference survey. In this activity,
participants were shown a series of different images. The photos included areas from the Town
and areas beyond. The images included natural areas, farmland, housing, and commercial uses.
Participants were asked to rank (on a scale of –5 to +5) what they felt were the images most
consistent with what they would like to see developed in the community. The results of this
exercise were presented to the Town and Village as an information item. The results are included
in the appendix.

Special Considerations
PROPERTY RIGHTS

Throughout the development of this plan, landowners have consistently expressed their desire to
see their property rights protected. This plan seeks to respect the property rights by illustrating
planned development patterns for all property owners to understand and use to make their own
personal development decisions.

If a landowner disagrees with the Future Land Use Maps, or another aspect of this plan, they
have the right to petition the Town and Village to amend the document. Any amendments would
occur through a public process, including a public hearing.

DESIRED AMENITIES

• Trails. The Transportation Plan Map illustrates planned on-road trail corridors as well as the
recently abandoned rail to trail route through the community. The community survey results
also express support for trail development.

• Park & Ride. Many residents commute to work each day. Car-pooling saves fuel and
reduces the demand for capital investment in arterial street and highway improvements.
Given rising fuel costs, it is possible that more and more residents may find carpooling to be
a viable transportation option. To support carpooling, a park and ride lot is needed. Potential
location for a park and ride lot is shown on the Future Land Use Maps as a parking district.

The proposed park and ride is centrally located along the new trail corridor. Therefore, in
addition to being useful as a hub for commuters traveling to Appleton, Green Bay and other
areas beyond the Village, it is also a viable access point for trail users. To further capitalize
on this location, it is anticipated that a farmers market may occur regularly within the park
and ride lot. In addition, it is strongly recommended that links be provided (e.g. sidewalks,
information signs, etc.) to connect this park and ride to the downtown business
establishments. In addition, a small area of multiple family and commercial uses are
identified adjacent to the new park & ride to provide a small convenience shopping area for
trail users and commuters with adjacent residential development for people interested in
living on the trail (above or adjacent to the proposed commercial businesses).

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• Expanded Park Facilities. In the Utilities and Community Facilities Element, the need for
additional park facilities is discussed. A future park site is illustrated on the Future Land Use
Maps. The site is recommended to meet the recreation needs of the growing population base.

HIGHWAY IMPROVEMENTS

The development of a new interchange at STH 47 and CTH A has the potential to generate
demand for different land uses in this area. The Town expects to review this matter in more
detail when the first comprehensive update of this plan is completed (within 10 years). It is
possible that additional commercial development may be provided consistent with the community
survey results.

ENVIRONMENTAL CORRIDORS

Participants in the planning effort clearly indicated natural features are an important part of the
community, and residents’ support protecting natural areas, including woodlands, floodplains,
wetlands and creeks. To that end, the Future Land Use Maps delineate a environmental corridor
that consists of wetland, woodland, and undeveloped areas.

Environmental corridors are components of the landscape connecting natural areas, open space,
farmland and wildlife habitat. They provide physical linkages between fragmented habitat areas
and provide animals and insects a means of travel to and from feeding and breeding places. Fish
and wildlife populations, native plant distribution, and even clean water all depend upon
movement through corridors. Most native species decline when habitat areas are fragmented due
to agricultural operations or residential and commercial development. Wildlife populations
isolated in one location, like a stand of trees or a secluded wetland, can overpopulate or die out
without adequate corridors allowing free and unimpeded movement.

The functional effectiveness of a corridor depends on the What is Habitat Fragmentation?

type of species that use it, its size and shape, and its edge Habitat fragmentation is the alteration or
effects. Larger corridors offer greater habitat diversity. fracturing of wildlife habitat into discrete
Linear corridors tend to be less diverse but offer or tenuously connected islands. This
important migration routes. Edge effects include the results from modification or conversion of
penetration of wind, light, and sound, as well as the landscape due to development or
visibility beyond and into surrounding areas. They are agricultural operations. Carefully planned
crucial in determining the type of habitat a corridor will environmental corridors provide
provide. In the Town of Black Creek, farmlands opportunities to reconnect fragmented
function as important wildlife corridors. natural areas and improve habitat for
important plant, animal and insect
One way to think of environmental corridors is to species.
compare them to hallways. A building contains
hallways, which are places of concentrated movement back and forth; and rooms, which are
destination points where people eat, work, play, and sleep. The hallways serve to link places of
activity. Just as hallways enhance the operation of a building, environmental corridors increase
the value of natural resource areas. Areas of concentrated natural resource activity (“rooms”),
such as wetlands, woodlands, prairies, lakes, and other features, become more functional when
linked by environmental corridors (“hallways”).3

3
Environmental Corridors: “Lifelines for Living”; University of Illinois Extension; Fact Sheet Series,
2001-013.
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Appendix B – An Example Land Use Element

Environmental corridors often lie along stream and riverbanks. More than seventy-percent of all
terrestrial wildlife species use riparian corridors like the Black Creek. Conservation design and
open space development patterns in urbanizing areas have begun to address the importance of
maintaining and restoring environmental corridors. Economic benefits of preserving and
enhancing these habitat areas include increasing the value of nearby housing sites, reducing the
risks of building in areas with soils rated poor for development, providing flood protection,
reducing the cost of stabilizing eroding stream banks, and protecting water quality.

PRIVATE SEWER AND WATER CHALLENGES

In the Town a relatively new problem has been emerging with individual mound systems. The
Town has an abundance of mound systems that are about 10 years old and several of these have
failed. The replacement costs is approximately $10,000. Periodic cleanout and inspection may
run as high as $1,000 each time. This is making mound systems very expensive.

Some have said that holding tanks are the answer to this issue. However, holding tanks are also
expensive to pump out and the Black Creek Sanitary District will not accept the material. As a
result, people would need to haul the material to other places. Given that the holding tanks need
to be emptied periodically, this will increase truck traffic on Town roads, which presents a
particular problem in the spring when the roads are thawing.

Private wells are also a critical issue to development in the Town. This issue was discussed in the
Utilities and Community Facilities, as well as, the Agricultural, Natural and Cultural Resources
Elements. It is not realistic to build a municipal water system given scattered, low-density
development pattern. Costs are simply prohibitive. As a result, the Town is dependent on its
groundwater. Increased arsenic levels have been detected and continue to rise. Beyond the
consumption issues associated with arsenic, there also appears to be a link between the arsenic
damaging pipes and causing homeowners to have to play for replacement plumbing.

For these reasons, the bulk of new residential development is planned in the community is shown
Village of Black Creek and its surrounding vicinity. Moreover, the Town will consider
requirements for community wells, possible restrictions on earthen pond development (based on
concern of unnecessarily drawing water from aquifer), and support the DNR well casing
requirements.

EXCLUSIVE AGRICULTURAL ZONING

As has been discussed in several areas of this plan, there is a 35-acre minimum lot size
throughout much of the Town of Black Creek as part of its exclusive agricultural zoning. At the
same time, there has been some concern raised by local farmers that they need to sell their land
for residential development in order to finance their retirement. This plan seeks to provide an
alternative to that notion by identifying ways to sustain the agricultural economy as a viable land
use with saleable parcels.

The Economic Development and Agricultural, Natural and Cultural Resources discuss
opportunities associated with niche farming and organic farming. Another effective strategy is
agritourism zoning. For local farmers, the draw of embarking on an agritourism business is to
add much-needed income to a small farm operation. Agritourism takes many forms, including
traditional roadside stands, country stores, and bed-and-breakfast inns, or more innovative
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enterprises such as festivals, corn mazes, wineries, cider mills, pumpkin patches, hayrides, petting
zoos, corporate retreats, farm stays, ranch stays, educational classes, and tours.

Areas slated for new town development generally fall beyond areas zoned exclusive agricultural.
If residential development on smaller lots is requested in these areas, if approved, all tax credits
would need to be repaid.

CONNECTIVITY IN THE VILLAGE4

The purpose of a street

network is to connect
spatially separated
places and to enable
movement from one
place to another. With
few exceptions, a local
street network connects
every place in a
community to every
other place in the
community. But,
depending on the design
of the network, the (Left) A high-connectivity street network. (Right) A low-connectivity street network).
quality of those
SOURCE: Susan Handy, Robert G. Paterson, and Kent Butler. Planning for Street
connections will vary. Connectivity. PAS Report 515

The Transportation Element

provided a brief introduction to the issues of connectivity. In that chapter, the natural and man-
made resources (e.g. wetlands, creek) in and around Black Creek were identified as a challenge to
the layout of roads. These features sometimes require the development of cul-de-sacs to
accommodate development with minimal impact on such natural features.

The historic neighborhoods of the Village of Black Creek are very well connected. Travelers
have a number of options (e.g. intersecting streets, a grid pattern of streets, a highway corridor) to
use to get to different locations. However this is not as true for newer Village developments.
Winding streets, longer blocks and cul-de-sacs are more common in these newer developments.

The Village of Black Creek is not alone. Communities across the country face issues of
connectivity. What is important to realize is that it is not too late. Now is the time to consider the
potential benefits of improved street connectivity – before any additional neighborhoods with
poor connectivity are approved.

Increasing street connectivity will:

ƒ Decrease traffic on arterial streets;
ƒ Provide for continuous and more direct routes that facilitate travel by nonmotorized modes
such as walking and bicycling;

4
Planning for Connectivity: Getting from Here to There, Susan Handy, Robert G. Paterson and Kent
Butler, Planning Advisory Service Report Number 515, American Planning Association, 2003.

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Appendix B – An Example Land Use Element

ƒ Provide greater emergency vehicle access and reduced response time, and conversely,
provide multiple routes of evacuation in case of disasters such as tornadoes; and
ƒ Improve the quality of utility connections, facilitate maintenance, and enable more efficient
trash and recycling collection and other transport-based community services.

Two approaches have been used most frequently to address the issue of connectivity: block
length requirements and connectivity indexes. With a
block length requirement, the Village controls the
spacing between local streets, thereby creating a
relatively predictable and evenly distributed network
of streets.

A connectivity index is calculated as the number of

street links dividing by the number of nodes or link
ends. The higher the number of links relative to
nodes, the greater the connection.

In addition to choosing an approach to defining and

measuring connectivity, the Town and Village should
Block Length Requirement Diagram
also continue to address:

ƒ Planning needs for future street connections through

stub-out requirements;
ƒ Restricting the use or length of cul-de-sacs;
Prohibiting gated communities;
ƒ Promoting pedestrian and bicycle connectivity; and
Giving appropriate consideration to topography,
floodplains, dense drainage networks and to other factors
that might limit connections.

Community Design Approaches for

Better Livability
There are two guiding approaches recommended for future
development in the Village of Black Creek: New Urbanism
and Traditional Neighborhood Design. These approaches
can work harmoniously to provide profitable new
development patterns that respect the natural setting and
promote a high quality of living. These principals combat Calculation of a Connectivity Index
harmful sprawling practices. Sprawl (e.g. scattered, low ILLUSTRATION SOURCE: Susan Handy, Robert
density, separation of uses, unconnected development) G. Paterson, and Kent Butler. Planning for Street
encourages a sedentary lifestyle where residents are forced Connectivity. PAS Report 515.
to drive to destinations. An increasingly sedentary
lifestyle is one reason why heart disease, obesity and stroke have increased in American Society.

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NEW URBANISM FOR THE VILLAGE OF BLACK CREEK

New Urbanism is an international planning movement to reform the design of the built
environment. Its goals are to raise the quality of life and standard of living by creating better
places to live. New Urbanism is the revival of the lost art of place making, not just developing.
The seven primary principles of New Urbanism are highlighted on the next page along with their
relationship to the Village of Black Creek.

PRINCIPLES RELATIONSHIP TO BLACK CREEK

1. Walkability
Most things are within a 10- The layout of the older portions of the Village is where walkability is
minute walk (1/4 mi). Pedestrian best. Destinations (e.g. schools, parks, shopping) are concentrated in
friendly street design that this area. The Village has sidewalks throughout the community to
encourages a greater use of make walking a safe choice. These same traits are not present in the
bicycles, rollerblades, scooters, newer neighborhoods on the periphery of the Village.
and walking as daily transportation

2. Connectivity
An interconnected network of As is discussed earlier in this Chapter, connectivity is something that
grid Streets needs to be improved. Connectivity can be improved by providing
additional roadway connections and also pedestrian and cycling
connections through trails and sidewalks between developments.

3. Mixed Uses The Village has a wonderful array of different land uses in the older
areas of the community. Newer developments have tended to
segregate uses.

4. Mixed Housing Types The Village has an opportunity to improve its balance of housing types
to provide quality living choices, including condominiums, townhomes,
apartments and the like. These structures promote affordability and
walkability. Moreover, these types of developments allow the Village
to capitalize on its infrastructure (e.g. water and sewer).

5. Quality Architecture & Design There are limited design requirements for development in Black Creek.
Emphasis on beauty, The requirements that do exist in the Zoning Code are related to
aesthetics, human comfort, setbacks, building height, and density requirements.
and creating a sense of place
6. Traditional Neighborhood Many areas of the Village follow this pattern. The downtown is
Structure centrally located. Parks, the library, schools, and even a medical clinic
Discernable center and edge. are centrally located within neighborhoods.
Public space at center.
7. Sustainability The Wisconsin Energy Star Program has guidelines that can be used
Energy efficient design. as a standard for new housing construction and to improve energy
More walking less driving. efficiency in older homes. Likewise, through planning, the Village can
promote development patterns and amenities that encourage walking
and cycling as viable transportation alternatives to driving.

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TRADITIONAL NEIGHBORHOOD DEVELOPMENT (TND)5 FOR THE

VILLAGE OF BLACK CREEK

The comprehensive planning law defines “traditional neighborhood development” (TND) to

mean compact, mixed-use neighborhood where residential, commercial and civic buildings are in
close proximity to each other. TND is a planning concept based on the principles of new
urbanism to promote traditional small cities and villages. TND is found in the older parts of
Wisconsin’s cities and villages. Principles of TND include:

ƒ Compact. TND areas have a higher density than traditional single-family subdivision (i.e.
duplexes, apartments, as well as single family homes on smaller lots). Compact development
also means that the developed area is designed for human scale, not always the automobile.
This includes being sensitive to walking distances, heights of buildings, design of streetlights,
signs, sidewalks and other features. Compact development includes parks, public buildings,
and retail development within a close proximity. These features serve as destination points
for surrounding residential areas in the immediate vicinity (1/2 mile or less).

ƒ Mixed Use. TND includes a mixture of land uses. This means that nonresidential land uses,
such as commercial areas, are mixed with residential development. Mixing uses helps
promote walking throughout the community. Mixing land uses can also broaden the tax base.
Furthermore, mixed uses can promote different means of transportation (walking, bicycling,
automobiles).

Mixed use also means promoting varied housing types and sizes to accommodate households
of all ages, sizes and incomes. This translates into varying lot sizes and allowing varied types
of housing such as attached single-family residences, town homes, duplexes, and housing for
seniors. Mixed use may also mean that residential uses are provided above or in the same
building as commercial uses.

ƒ Street Patterns, Sidewalks, and Bikeways. TND provides for access through an
interconnected network of streets, which facilitate walking, bicycling and driving.

ƒ Cultural and Environmental Sensitivity and Design. TND can foster a sense of
community identity. The design of buildings and their placement receives special attention.
Provision of adequate open spaces, use of indigenous vegetation and the use of
environmentally responsive storm water management systems are equally important.

CONSERVATION SUBDIVISION DESIGN FOR THE TOWN OF BLACK CREEK

The Town of Black Creek has a significant supply of farmlands, woodlands, and natural resources
(refer to the Natural Features Map in Chapter 7). In the community survey, at public meetings,
and through the vision statements, retaining these areas was considered important.

The Town of Black Creek sees several advantages to conservation-based development,

particularly conservation subdivisions, including:

5
Model Traditional Neighborhood Development Ordinance, UW-Extension, 2000

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ƒ The ability to protect rural character by maintaining natural areas, woodlands, scenic views,
open undeveloped areas, and farmland.
ƒ Cost savings to developers because fewer roads and other infrastructure is required because a
smaller area of the site is served.
ƒ Profit advantages to developers and landowners because lots in conservation subdivisions
typically sell for higher prices than conventional lots of the same size.

There are two ways to develop conservation subdivisions. Figure 1 illustrates the differences
between the two approaches.

If the landowner agrees to common open space, a conservation easement is established. A

conservation easement is a restriction against further development on a portion of a property.
Conservation easements can be used to protect floodplains, areas of steep slope, woodlands, and
scenic views beyond the home sites in the development. In this approach, individual lot sizes are
reduced and surrounding land is held in common ownership and usually maintained by a
homeowners association. The overall density of development remains the same (i.e. no more
homes are permitted than in a traditional subdivision development).

In some situations, it is not feasible to reduce the lot size to develop a conservation/cluster
subdivision. In these situations, lot lines can be extended so that there is no common open space,
but rather private open space. Areas beyond the house site can then be deed-restricted against
further development, keeping the property open without creating a “common” open space that
will need to be maintained by a homeowners association or others.

The Town of Black Creek does not currently have regulations in place to permit conservation
subdivisions. Accordingly, objectives have been added to this chapter.
OPTION WITH COMMON OPEN SPACE OPTION WITH PRIVATE OPEN SPACE

Figure1
SOURCE: Fred Heyer, Preserving Rural Character, American Planning Association PAS Report No. 429

Community Design Tools

Community design principles are integral to the future of Black Creek. Use of community design
can ensure that new development will be harmonious with existing areas and provide profitable
landscapes that respect the natural setting and promote a high quality of living in a healthy
environment.To that end, the Town and Village support the continued enforcement of zoning
regulations, including sign and landscape ordinances. Likewise, the Town and Village supports
the use of a detailed site plan review process, including lighting, sidewalk, building material and
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sign proposals, to ensure that new development is compatible with surrounding land uses and the
visions, goals, objectives and policies expressed in this plan.

OUTDOOR LIGHTING STANDARDS FOR COMMERCIAL USES

Increasingly, light pollution caused by excessive exterior lighting is a source of concern. The
Town and Village of Black Creek can address the problem by educating residents and others
about more efficient exterior lighting practices (e.g. sensor lighting, pointing lighting sources
down vs. up, providing shields to direct lighting to where it is needed). This education can be
done through a web site and/or a Town and Village newsletter. The Town and Village can also
adopt ordinances to regulate the type, placement, and brightness of residential and commercial
light fixtures. Standards can be found from the Illuminating Engineering Society of North
America (www.iesna.org) and the International Dark-Sky Association has additional information
on this topic (www.darksky.org).

BILLBOARD POLICY

The highway corridors offer opportunities for billboard advertising and the use of tall pylon signs.
To preserve and enhance the scenic character of Black Creek, additional billboards and tall pylon
signs should be prohibited. Constructing new billboards and tall pylon signs and replacing
existing billboard and tall pylon signs distracts from the scenic quality of the community.
Moreover, these signs are not major tax generators and are not highly effective for bringing
customers to local businesses.

DESIGN ORDINANCE

In looking at the older downtown buildings in the Village of Black Creek, one is quick to notice
that they look little like the more recent auto-oriented commercial buildings located on the
periphery of STH 47. The older buildings are built much closer to the street and to one another.
Parking is located on street, to the side, and rear of these businesses. The signage is also
comparatively less than newer uses with
freestanding signs and larger wall-mounted signs.

The Village’s current ordinances do not easily

permit this type of development to be duplicated.
Local ordinances include minimum parking, lot size
and setback requirements that are excessive and
have resulted in developments that are more auto-
oriented than pedestrian oriented (e.g. excessive
parking areas between the building and the road,
excessive signage, etc).

An opportunity exists to revitalize the Village’s

Zoning Code to better reflect the desired appearance
and character of any new development to ensure that
it is not only appropriately located, but of an
appropriate size, scale, attractive, and compatible
with a healthy Village.

A design ordinance is a comprehensive tool to

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define specifically what building materials, colors, styles, sizes, roof types, building lines (vs.
setback), landscaping, lighting, signage and other amenities are required. Design ordinances can
be used to promote New Urbanism approaches to commercial development. Communities use
design ordinances to create a consistent community image. Typically, design ordinances describe
a pallet of materials, styles, and requirements for developers to choose from. Each of the items in
the pallet will work well together to create the desired community image.

As was previously mentioned in this plan, the Village has some ordinances to address design
minimums (e.g. minimum building setback, building height, and signage), but these requirements
are either inconsistent with older development patterns or simply too vague. A design ordinance
provides specific parameters to regulate building location (e.g. requiring new buildings to match
the building lines established by historic development). Moreover, a design ordinance can be
used to provide standards to revitalize vacated buildings and infill empty lots. Below are some
elements of design ordinances that may be included in a design ordinance.

Streetscape Roofline and Roof Shapes

The upper edges of building roofs, or rooflines, visually define the height of the building and/or
streetscape. The visual continuity of these urban design elements should be maintained, if
warranted, and building development or redevelopment with nonconforming rooflines should be
discouraged.

Selection of Materials and Colors

Selection of materials and colors for both architectural and landscape design should be based
upon material and color unity, the atmosphere and character desired, the material and color
composition of surrounding buildings
and landscape features, the material’s
and color’s compatibility with other
materials and colors, and climatic
considerations. Conflicting material use
and relationships should be avoided.

Architectural Details
Architectural details and building
ornamentation (if present) often
represent historic elements of
architecture and are important
components of the overall character of a
community. The distinctiveness of older residential and commercial buildings is directly
associated with their architectural details. Unsympathetic design changes can destroy both the
architectural character of a building and the overall community streetscape. Significant
architectural details, where they exist, should not be lost in rehabilitation or “modernization” of
buildings. Remodeling efforts should attempt to retain architectural details. However, efforts to
transform an existing building into an earlier period through the use of details that were not
originally used on the structure do not maintain any original architecture. Consequently, an
introduction of modern detail or a mixture of old and new parts on buildings should be avoided,
to preserve the overall visual character of the building.

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STREETSCAPING

There are two types of

shopping areas: destination
and drive by. Destination
shopping districts are
unique. People will go out
of their way to experience
their unique environment
and selection. Drive by
shopping areas are found in
anyplace, USA. They are
the standard array of stores
and designs that one can
find in any community.
People shop these locations
because they are
convenient.

Streetscaping efforts (also discussed in the Economic Development Element) can be used to
refresh shopping areas and integrate these areas with the community. Streetscape improvements
include: burial of power lines, sidewalk improvements, lighting and signage investments,
building façade improvements.

Apply Community Design in Black Creek

USING THE MAIN STREET PROGRAM FOR MORE INFORMATION

Since 1980, the National Main Street Center has been working The National Main Street
with communities across the nation to revitalize their historic or Center
traditional commercial areas. Based in historic preservation, the of the National Trust for
Main Street approach was developed to save historic commercial Historic Preservation
architecture and the fabric of American communities' built 1785 Massachusetts Avenue,
environment, but has become a powerful economic development N.W., Washington, DC 20036
tool as well. Phone: 202.588.6219
Fax: 202.588.6050.
The Main Street program is designed to improve all aspects of Email: [email protected]
the downtown or central business district, producing both
tangible and intangible benefits. Improving economic management, strengthening public
participation, and making downtown a fun place to visit are as critical to Main Street's future as
recruiting new businesses, rehabilitating buildings, and expanding parking. Building on
downtown's inherent assets -- rich architecture, personal service, and traditional values and most
of all, a sense of place -- the Main Street approach has rekindled entrepreneurship, downtown
cooperation and civic concern. It has earned national recognition as a practical strategy
appropriately scaled to a community's local resources and conditions. And because it is a locally
driven program, all initiative stems from local issues and concerns.

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The National Main Street Center can help the Village of Black Creek organize a program,
develop a fundraising plan, create a vision for the future of STH 47 and STH 54 and a strategic
way to accomplish your goals.

By investing in the Downtown, residents and visitors will have a place to gather. By providing
places to purchase food and beverages for consumption on site (including outdoor dining), unique
shopping, as well as, needed local services in a beautiful setting (e.g. parks, landscaping, public
art, street and/or sidewalk arches, with buildings located close to the sidewalk to make them easy
to walk to), people will visit the area with more frequency and the community will be a
destination for visitors. Some samples of recommended building styles are provided on the next
page.

STREETSCAPING IN THE VILLAGE OF BLACK CREEK

The heart of the Village is its downtown. Downtown is where many different land uses are
located within close proximity to one another. Accordingly, this is also the area of the
community where people are more likely to walk to their destinations (or between destinations)
rather than drive.

Several of the buildings located along STH 47 are built to the street with no setbacks. These
structures are an important part of the Village’s history. What is important is to ensure that
destination points remain downtown (e.g. shopping, restaurants, services) to attract visitors and
shoppers. By enhancing the downtown, a distinctive positive image of the Village can be
projected.

Areas adjacent to the downtown provide an opportunity for housing development to

accommodate populations that may not be as willing or able to drive to destinations (e.g.
restaurants, shopping, services). Townhomes, condos or senior housing are all housing choices
that could be located adjacent to downtown Black Creek. This strategy can help sustain the
downtown with a reliable, resident customer base.

Downtown revitalization will require investment in façade improvements, interior renovations,

and streetscaping. To help finance these improvements, many communities have established
façade improvement programs that provide low interest loans or grants to property owners
seeking to restore the historic character of their building to promote its successful use. Moreover,
municipal investments in streetscaping and available grant funding to restore buildings and
provide handicap access are important.

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SOURCE FOR ILLUSTRATIONS: OMNNI Associates, Inc.

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SAMPLES OF DESIRABLE BUILDING

STYLES FOR THE STH 47
CORRIDOR IN THE VILLAGE OF
BLACK CREEK

SOURCE FOR ILLUSTRATIONS: OMNNI Associates, Inc.

STH 47 AND STH 54 GATEWAY DESIGN

Many participants in the cognitive mapping exercise described

development along STH 54 and STH 47 as unattractive. The
corridors are home to variety of uses. Few buildings reflect
the historic character of the community. The corridors have
become a drive by shopping area. Even local residents do
much of their shopping elsewhere.

Streetscaping can improve the corridors by providing a

distinguishable
business
environment that
brings customers to
the area seeking a Samples of decorative lighting that may be an
different shopping option along the gateways.
experience and
entices new businesses to open. Streetscape
improvements to enhance this corridor would include
landscaping (particularly in the form of street trees
planted along the corridors), consistent street lighting
features, and distinctive street signs (including
banners). These treatments can help to define the
street lines visually, add texture and natural color,
provide needed optical screening and fill spaces
currently void of design significance.
Examples of decorative signage that is
compatible with the residential character of An enhancement grant, combined with private
the area and with a level of detail that is investment based on carefully developed design codes
attractive and functional for pedestrians and
would allow the Village to make many of these
motorists.
suggested improvements.
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Appendix B – An Example Land Use Element

NEW TRAIL CORRIDOR DESIGN

As is discussed in the Transportation, Utilities and Community Facilities, as well as the Economic
Development Element, the new trail brings a wonderful array of opportunities to the community.
The design of trail amenities (e.g. signage, benches, trash receptacles, information kiosks, etc.) is
important, particularly as it relates to directional information to get tourists using the trail to
patronize local businesses.

SOURCE FOR ILLUSTRATIONS: OMNNI Associates, Inc.

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Housing Strategy for the Village

The Village of Black Creek is a unique community that has the
potential to offer a walkable mix of uses that will attract
residents to the area and showcase the Village’s small town
charm.

Using the principals of TND and New Urbanism as a guide,

the following strategy is recommended for housing
development in Black Creek. It is anticipated that
TND Community - Middleton Hills, WI
developments employing these traits would be approved
through the use of Planned Unit
Development Zoning or creation of a
new zoning district for traditional
neighborhood development.

ƒ A variety of lot sizes ranging from

6,000 to 10,000 square feet with
an abundance of two-story single-
family homes of different sizes.
ƒ Larger public spaces vs.
individual yards in areas with
smaller lots.
ƒ A mix of detailed buildings that
reflect the historic character of the
community.
Examples of quality multiple family housing in New Urbanist
ƒ Landscaping, including terrace
Communities Across the U.S.
trees, in front yards.
ƒ Sidewalks and trails in
neighborhoods to promote
walkability.
ƒ Housing for life – providing a mix
of single-family, multiple-family
(that also share characteristics of
single family – balcony’s, bays,
porches, detailed architecture, rear
parking, front door oriented
toward the street), and senior
housing in close proximity.
ƒ Encourage development patterns
that allow for a corner store,
office, daycare, or park on the
edge of single-family residential
neighborhoods along important
local streets (e.g. Burdick, Maple, Examples of corner uses (e.g. first floor retail and second story
Forest, STH 54 and 47). residential or office) that should be considered in residential
neighborhoods in the Village in a fashion similar to the location of the
library, medical center and parks.

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ƒ Buildings with front doors and porches, not garages, facing the street frontage. This approach
puts “eyes on the street” as a means to promote safety and a sense of community.
ƒ On street parking for residential units.

Housing Strategy for the Town

The Town offers a setting for development that is different from the Village. Town development
is on larger lots. Village development is more compact, walkable, and neighborhood-based using
available water and sewer infrastructure. These different environments offer buyers a choice by
providing distinct areas for living.

The housing strategy for the Town is very different from that of the Village. The Town
recognizes that a proliferation of sprawling residential development will have an adverse affect
on the Town’s rural character, agricultural integrity, and tax base. In addition, given the
exclusive agricultural zoning throughout much of the town, this type of developent is prohibited.
Therefore, the Town will direct any housing development to conservation-based subdivisions
located adjaent to existing residential areas (e.g. near CTH A and the Village). This strategy is
consistent with resident opinions in the community survey which support a rural atmosphere with
abundant hunting areas and areas of scenic enjoyment.

Coordination with the Other Required Plan Elements

HOUSING

Chapter 4 includes an inventory of the existing housing supply, a discussion of housing needs and
a series of supporting goals and objectives. This chapter also establishes the policy for
maintaining a variety of housing choices. This policy is translated on the Future Land Use Maps.

TRANSPORTATION

Chapter 5 includes a plan for transportation improvements, including trails and sidewalks, over
the planning period. The walkability and connectivity principals discussed in this chapter support
the goals, objectives and policies presented in the Transportation Element.

UTILITIES AND COMMUNITY FACILITIES

Chapter 6 describes the infrastructure available to support growth and development in Black
Creek. Chapter 6 also highlights the need for expanded services as the area grows.

AGRICULTURAL, NATURAL AND CULTURAL RESOURCES

Chapter 7 profiles productive agricultural areas, the diverse natural landscape and the variety of
cultural resources available to residents.

ECONOMIC DEVELOPMENT

Chapter 8 provides a vision and supporting goals, objectives and policies to support economic
growth. The Future Land Use Maps illustrate the recommendations set forth in Chapter 8.
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How Were the Future Land Use Maps Developed?

The Future Land Use Maps were developed using a very specific process:

1. Natural resource areas were identified to understand development limitations.

2. Future population and household projections, in conjunction with zoning requirements, were
examined to understand the extent of future residential development needed in the Town and
Village.
3. Utility and community facility capacities were reviewed to ensure new development would
be adequately serviced.
4. Planned and anticipated road and trail network changes were considered.
5. The results of the cognitive mapping exercise and community survey were reviewed to
emphasize resident desires and expectations.
6. New Urbanism and TND approaches were used as a framework for planning for future uses
in the Village.

The result of this process is the detailed set of Future Land Use Maps presented at the end of this
chapter. It should be noted that there is only a 10-Year Plan Map for the Village. This is because
the Village has a more efficient means of guiding development through infrastructure extension
than the Town. In the Town, individual landowner interest and highway improvements primarily
drive development decisions (e.g. CTH A and STH 47 interchange with associated frontage roads
will encourage development upon completion). The 10-Year Village Map is intended to provide
an indicate of timing for future development. However, ultimately, the 20-Year Future Land Use
Map is the Village’s official guide for future land use development.

How Are the Future Land Use Maps Used?

The Future Land Use Maps are a planning tool for Black Creek. In accordance with the Smart
Growth Law, they should be used to guide the following actions:
ƒ Official Mapping ƒ Local Subdivision ƒ Zoning
Regulation

Town and Village appointed and elected officials should use the plan maps as a guide for
making future land use decisions.

Developers and residents should understand the plan maps are intended to direct development to
certain areas where facilities and services are available.

It is important to remember that a plan is not a static document. It must evolve to reflect current
conditions. If not regularly reviewed and amended, it will become ineffective.

Applications for rezoning and development that are inconsistent with the plan and plan maps
must still be considered. In some situations, it may be desirable to amend the plan (and maps) to
accommodate a compatible, but previously unplanned use. Likewise, a change in county or
regional policy, technological changes, or environmental changes may also impact the plan.

Any change to the plan (including the plan maps) must be considered in the context of all nine
required plan elements, including the visions, goals and policies expressed in this document. If
an amendment is to be approved, the process must include a formal public hearing and

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Town and Village of Black Creek Comprehensive Plan
Chapter 10: Land Use, Part 2 177
Appendix B – An Example Land Use Element

distribution per the requirements of the Wisconsin Smart Growth Law. Any amendment must be
recommended by the appropriate Plan Commission and approved by either (depending on the
community) the Town Board or Village Board before development is permitted.

Introduction to the Future Land Use Maps

Provided at the conclusion of this chapter are 10-Year and 20-Year Future Land Use Maps for
Black Creek. These maps illustrate the anticipated amount, location, and intensity of new
development.

The Future Land Use Maps were built from the Existing Land Use Map. Existing land use
patterns and conditions are the foundation of the plan -- the beginning point from which to build
the future. The Future Land Use Maps designate specific areas to be developed in accordance the
requirements of local regulations. Uses are located to take advantage of a cost effective extension
of infrastructure. By allowing development to occur in these areas local goals can be attained.
For example, the cost of providing services will be kept to a minimum, the character of the
community will be preserved, there will be minimal interference with agricultural production, and
residential property values will be maintained because there will be no negative impacts from
mixing non-residential and residential development.

As with any long-term planning document, as proposals are presented, amendments may be
necessary to reflect market forces that shift land use patterns. However, it would be preferable
for the Town and Village Plan Commission’s to periodically initiate a process to review and
recommend changes to the Future Land Use Maps with public participation, so that proposed
changes can be considered outside the context of a particular landowner's proposed development.
The following is a description of different land use categories used in the Future Land Use Maps.

INSTITUTIONAL. These uses would include schools, churches, medical facilities and government
owned-properties.

SINGLE FAMILY RESIDENTIAL. In the Village, it is anticipated that these areas will
accommodate single-family homes developed in traditional subdivisions, some of which may
follow Traditional Neighborhood Design (TND) and New Urbanism principals outlined in this
chapter. The streets serving these areas should be well connected, with a minimal number of cul-
de-sacs. Sidewalk and trail connections should be provided whenever feasible.

In the Village, the integration of commercial uses (e.g. neighborhood activity centers) at the edge
of neighborhoods along busier streets to accommodate neighborhood services (e.g. schools,
churches, daycare, police station, fire station, schools), office uses (e.g. accountant, attorney,
medical office) and small retail establishments are an option. Neighborhood businesses could
include coffee shops, beauty salons, drycleaners, ice cream parlors, restaurants, pubs, daycare,
movie rental stores, card shop, athletic clubs, etc. More intensive uses like gas stations, strip
malls, and big-box retail are not consistent with the neighborhood activity center. There is also
the potential for some second story apartments (above the retail or office uses) in these areas.

In the Town, residential development will also occur through CSM’s, individual lot splits and
conservation-based subdivision developments. Future residential uses are shown near CTH A ,
adjacent to the Village, and off CTH PP.

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DUPLEX/TOWNHOMES. These areas are intended to serve as a transition between more intensive
uses (e.g. industrial areas, commercial areas, and higher traffic roadways) and neighboring single-
family residential neighborhoods. There is also some potential for duplex/townhomes uses
adjacent to corner uses (e.g. neighborhood activity centers) developed in the Village to act as a
buffer between these uses and single-family residences.

MULTI-FAMILY RESIDENTIAL. Triplexes, quadplexes, condominiums, and apartments may be

developed in these areas. These areas may or may not be designed to accommodate seniors.

COMMERCIAL. These areas reflect existing developments and some new potential commercial
areas along STH 47. These areas are more likely to accommodate auto-oriented uses
(e.g. restaurants, gas station) catering primarily to passing motorists. Similarly, these uses will
have abundant off-street parking, perhaps drive-thru features, and freestanding signage. Long-
term (beyond the 20-year limits of this plan) additional commercial uses are anticipated near the
CTH A and STH 47 interchange along frontage roads in accordance with the Collective Survey
Map available in the appendix.

POTENTIAL BYPASS CORRIDOR ROUTE. This route is shown on the Future Land Use Maps,
consistent with the preferred route outlined on the Transportation Plan Map provided earlier in
this document. This delineation is provided to restrict development from this corridor in order to
preserve this area as a potential bypass route. Adoption of this route as part of Official Town and
Village Maps is recommended in the Implementation Element.

UTILITIES. These areas include water towers, cellular towers, police communication towers and
natural gas sites.

FARMSTEADS/OUTBUILDINGS. These areas are shown only on the Town’s Map to illustrate
existing farmsteads. New farmsteads and outbuildings could be established in conjunction with
organic and alterative farm development.

UNDEVELOPED. These areas are not presently occupied by housing, farmed, or classified as
wetland, floodplain, or woodland areas. These areas are found in the Town and are zoned
exclusive agricultural.

DOWNTOWN DISTRICT. The central business district of the Village is to remain the primary
economic activity center within the community. Through streetscaping, trail connections, and
nearby infill housing, the downtown can grow and prosper.

RECREATIONAL. Existing park sites, as well as, a new Town Park site are included in this
category.

INDUSTRIAL. Additional industrial development is shown along the railroad corridor. It is

anticipated that development will occur in an industrial park setting.

EXCLUSIVE AGRICULTURE. These areas correspond to the Town’s current zoning ordinance
requirements and the State’s program. Development of these areas would require rezoning and a
payback of any tax credits received.

MEGA/HOBBY FARM MIX. These areas were identified on the cognitive maps prepared by
participants. These areas are believed to be best suited to larger factory or concentrated animal
feeding operations. In addition, hobby farms (e.g. horse farms) are also encouraged in these areas.
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Appendix B – An Example Land Use Element

PARKING DISTRICTS. These areas are identified clearly on the Future Land Use Map for the
Village. The most prominent of which is located in an area where the former railroad corridor
easement was much wider than in other areas. It is hoped that a park and ride use will be
developed that this location. This space would cater to commuters, downtown business patrons,
and trail users and may even include a farmers market.

SPECIAL DEVELOPMENT AREA. This area will develop as single-family residential if a bypass is
developed around the Village. Accordingly, additional commercial/industrial uses will locate
near the by-pass. If a by-pass is not developed, this area may accommodate industrial
development consistent with the development along the Canadian National Railroad corridor east
of this site.

SOLID WASTE SPREADING AREAS. These areas were delineated based on Town records of
landowners who had been issued permits in the past for waste spreading.

WOODLANDS/WETLANDS (ENVIRONMENTAL CORRIDORS). These areas face environmental

limitations that will limit their development potential. Accordingly, development should be
directed elsewhere in order to protect creeks, woodlands, wetlands, and wildlife habitat.

Table 24 provides a detailed breakdown of projected future development, in five-year increments,

in the Town and Village of Black Creek.

TABLE 24
20-YEAR PROJECTIONS FOR FUTURE LAND USE ACREAGE FOR THE TOWN AND VILLAGE

2005 2010 2015 2020 2025 (acres)

Land Use Type (acres) (acres) (acres) (acres)
Single Family Residential 1,031.5 1,075.0 1,119.0 1,140.0 1,191.0
Multiple Family Residential 5.5 8.5 12.0 12.0 12.0
Mobile Homes 12.5 12.5 12.5 12.5 12.5
Institutional 31.0 25.0 25.0 25.0 25.0
Commercial 71.0 85.0 104.0 115.0 121.0
Industrial 20.5 40.0 60.0 60.0 60.0
Utilities / Cemeteries 20.0 20.0 20.0 20.0 20.0
Recreation 26.0 40.0 72.0 72.0 72.0
Woodlands / Wetlands 6,818.0 6,815.0 6,813.0 6,810.0 6,807.0
Quarry 10.0 20.0 29.0 29.0 29.0
Undeveloped 2,731.0 2,550.0 2,500.0 2,400.0 2,339.0
Roads / Railroad 809.0 820.0 850.0 885.0 910.0
Farmland 11,384.0 9,573.0 9,464.5 9,500.5 9,483.0
Mega Farm District 0 1,886.5 1,886.5 1,886.5 1,886.5
Parking District / Farmers Market 0 0 2.5 2.5 2.5
Water Features 114.0 114.0 114.0 114.0 114.0
Total 23,084 23,084 23,084 23,084 23,084

Land Use Goals, Objectives & Policies

The Town and Village of Black Creek anticipate that their population and boundaries will grow
over the next 20 years. To ensure that this development will not destroy the character of the
community, negatively impact the natural environment, or create undue congestion, the Town and
Village of Black Creek, will pursue the goals and objectives and policies outlined in Chapter 12.
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116
 Appendix

Land-Based Classification
Standards Color Codes for
Activity and Function
C
This appendix identifies the color coding based data. Standards include classification
established by the Land-Based Classification tables, color coding schemes, conversion
Standards (LBCS) Project of the American tables, and an extensive database of over
Planning Association. Included are the color 18,000 land-use terms and 120,000 cross-
codes used for Activity and Function. links with the classification schemes. They
also have a growing collection of pictures
LBCS provides a consistent classification of land uses. Though not comprehensive,
methodology for land uses. LBCS is for they nevertheless show how the multi-
planners and others working with land-use dimensional classification works. Augmenting
information, whether it is for public or private this collection, they also have 104 other
sector, either as consumers or producers of land-use standards along with background
land-use data. project materials, including working papers,
references, links to other online resources,
Where to start? and contact information.
The Standards at www.planning.org/lbcs/
will help you begin. The website hosts
the entire classification standards for land-
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Appendix C – Land-Based Classification Standards Color Codes for Activity and Function

Land-Based Classification Standards 01-Apr-2001

LBCS Color Codes for 1-Digit Level Coding

Red, Green, Blue Values Color* LBCS Code Activity
RGB(255,255,0) yellow 1000 Residential activities
RGBHex(FF00FF)

RGB(255,0,0) red 2000 Shopping, business, or trade activities

RGBHex(FF0000)

RGB(160,32,240) purple 3000 Industrial, manufacturing, and waste-

RGBHex(A0F020) related activities

RGB(0,0,255) blue 4000 Social, institutional, or infrastructure-

RGBHex(00FF00) related activities

RGB(190,190,190) gray 5000 Travel or movement activities

RGBHex(BEBEBE)

RGB(47,79,79) dark slate gray 6000 Mass assembly of people

RGBHex(2F4F4F)

RGB(144,238,144) light green 7000 Leisure activities

RGBHex(9090EE)

RGB(34,139,34) forest green 8000 Natural resources-related activities

RGBHex(22228B)

RGB(255,255,255) white 9000 No human activity or unclassifiable

RGBHex(FFFFFF) activity

*Specify the RGB (red, green, blue) values, instead of relying on color names, for consistent reproduction
of colors on a printer, plotter, or computer screen. Using RGB values can sometimes avoid differences in
how software and hardware render colors. Some colors, no matter what, differ how they look on screen
from their printed version. Also, if you are reviewing this document on a computer screen, note that some
software (web browsers, for example) limit the number of colors displayed. If your software can only
accept hexadecimal values, as many GIS and plotting software do, then use the corresponding RGBHex
value. For CMYK values and other color coding details, check the LBCS website.
©American Planning Association, LBCS Project http://www.planning.org/lbcs E-Mail: [email protected] Page 1 of 5

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 Appendix C – Land-Based Classification Standards Color Codes for Activity and Function

Land-Based Classification Standards 01-Apr-2001

LBCS Color Codes for 1-Digit Level Coding

Red, Green, Blue Values Color* LBCS Code Function
RGB(255,255,0) yellow 1000 Residence or accommodation functions
RGBHex(FF00FF)

RGB(255,0,0) red 2000 General sales or services

RGBHex(FF0000)

RGB(160,32,240) purple 3000 Manufacturing and wholesale trade

RGBHex(A0F020)

RGB(190,190,190) gray 4000 Transportation, communication,

RGBHex(BEBEBE) information, and utilities

RGB(144,238,144) light green 5000 Arts, entertainment, and recreation

RGBHex(9090EE)

RGB(0,0,255) blue 6000 Education, public admin., health care, and

RGBHex(00FF00) other inst.

RGB(0,139,139) dark cyan 7000 Construction-related businesses

RGBHex(008B8B)

RGB(85,26,139) purple4 8000 Mining and extraction establishments

RGBHex(558B00)

RGB(34,139,34) forest green 9000 Agriculture, forestry, fishing and hunting

RGBHex(22228B)

*Specify the RGB (red, green, blue) values, instead of relying on color names, for consistent reproduction
of colors on a printer, plotter, or computer screen. Using RGB values can sometimes avoid differences in
how software and hardware render colors. Some colors, no matter what, differ how they look on screen
from their printed version. Also, if you are reviewing this document on a computer screen, note that some
software (web browsers, for example) limit the number of colors displayed. If your software can only
accept hexadecimal values, as many GIS and plotting software do, then use the corresponding RGBHex
value. For CMYK values and other color coding details, check the LBCS website.
©American Planning Association, LBCS Project http://www.planning.org/lbcs E-Mail: [email protected] Page 2 of 5

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120
 Appendix

Land Use Resources

American Farmland Trust, www.farmland.org/

D
Center for Land Use Education, University of Wisconsin-Stevens Point/Extension,
www.uwsp.edu/cnr/landcenter/, publications at: www.uwsp.edu/cnr/landcenter/pubs.html.

Directory of Resources for Comprehensive Planning in Wisconsin, at www.doa.state.wi.us, lists

resources that contain additional information on land data

Element guides, Wisconsin Department of Administration, www.doa.state.wi.us/

under Public Services > Comprehensive Planning

Gathering Waters, a coalition of Wisconsin land trusts, www.gatheringwaters.org/

Land-Based Classification Standards (LBCS), www.planning.org/lbcs/

Land Cover Data (WISCLAND), www.dnr.state.wi.us/maps/gis/datalandcover.html , can

provide a starting point for collecting useful data for a rural community

Model ordinance for a plan commission, Local Government Center, University of Wisconsin-
Extension, www.uwex.edu/lgc/

National Register, www.wisconsinhistory.org/hp/register

121
 Native American Tribes, www.500nations.com/Wisconsin_Tribes.asp.

Wisconsin Department of Natural Resources, www.dnr.state.wi.us/

Wisconsin Historical Society, list of local historical societies,

www.wisconsinhistory.org/localhistory/directory/regionsearch.asp

Wisconsin Historical Society, local landmarks commissions

www.wisconsinhistory.org/hp/smartgrowth/getting_started.asp

Wisconsin State Statutes, www.legis.state.wi.us/nav/wislaw.htm

122
A
Index

alternatives or scenarios 46, 47, 48, 59

C
I ndex
economic development 2, 5, 27, 28, 29, 30,
31, 34, 35, 48, 60, 80
housing 2, 3, 5, 14, 22, 27, 28, 29, 30, 31,
34, 35, 36, 37, 44, 45, 48, 49, 60, 80
implementation 75, 76
consensus
issues and opportunities 10, 29, 30
building 39, 41
land use
reaching 42
explanation 10
consistency 14, 15, 45, 65, 66, 73, 74
transportation 27, 28, 34, 35, 36, 44, 45, 48,
D 60
utilities and community facilities 33, 34,
decision 3, 4, 5, 6, 7, 8, 9, 15, 16, 17, 27, 31,
45, 48, 49, 80
32, 34, 38, 39, 40, 43, 45, 49, 66, 67, 70
development 2, 3, 4, 5, 6, 9, 10, 11, 14, 19, F
20, 22, 27, 28, 29, 30, 31, 32, 33, 34,
future land use map 3, 5, 11, 14, 23, 25, 29,
35, 36, 37, 39, 41, 42, 43, 44, 45, 48,
30, 32, 35, 36, 37, 45, 46, 47, 49, 50,
51, 52, 53, 59, 60, 61, 66, 67, 68, 69,
59, 60, 61, 65, 70, 73, 74
70, 71, 72, 73, 79, 80, 81
G
E
goals, objectives, policies and programs 11,
elements viii, 2, 3, 5, 6, 9, 14, 15, 20, 25, 26,
14, 15, 38, 39, 40, 41, 42, 43, 45, 47,
28, 30, 31, 35, 36, 40, 45, 48, 50, 60,
73, 75, 76
66, 72, 75, 76
defining 40
agricultural, natural and cultural resources
writing 42
48, 80

123
Index

growth 1, 2, 3, 8, 9, 11, 21, 27, 30, 31, 34,

35, 36, 38, 49, 51, 52, 61, 76, 80
I
integration 8, 9, 14, 48
inventory 3, 11, 14, 17, 19, 20, 25, 38, 41,
47, 59
M
map 3, 5, 11, 14, 17, 20, 21, 22, 23, 25, 27,
28, 29, 30, 32, 35, 36, 37, 38, 45, 46,
47, 49, 50, 59, 60, 61, 65, 70, 73, 74, 79
O
open space 3, 6, 11, 14, 31, 49, 69, 71
ordinance viii, 40, 45, 60, 66, 67, 69, 70, 71,
73
P
property rights 7, 44, 69
public participation viii, 5, 7, 9, 15, 16, 25,
38, 49, 50, 51, 67, 71, 76
R
rural 2, 3, 7, 10, 20, 22, 26, 28, 29, 30, 31,
32, 33, 36, 37, 41, 44, 48, 50, 51, 52,
70, 121
T
tradeoffs 6
trends 2, 3, 4, 10, 14, 16, 28, 30, 37, 38, 49,
60
U
urban 2, 3, 20, 22, 26, 33, 35, 38, 44, 80
V
vision/visioning 29, 48, 49, 50, 51
visualization 26, 29, 30, 50

124
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