[From the U.S. Government Printing Office, www.gpo.gov]














                                                                              ....                                                                                                                                                              .......
                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                      . . . . .... . ....























                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                             . . . . . . . . . .
                                    ................








                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                              aw

                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                           a                               4dw



                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                            AN ::i:i*,:::@@*,@@':'@',:
                                                                                                                                                                                                                                                                                               zrt

                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                            4W























                                      .................
                                                                                                                                                                                                                                                                                                                                                                                                                                                                     AN


                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                        ..........         *

                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                          ............






                                                                                                                                                                    POLICY GUIDELINES FOR FUTURE GROWTH
                                                                                                                                                                                                                                 ON THE LEELANAU PENINSULA

                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                             . . . . . . . . . . .
                                                                                      CIO





                                                                              Xm                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                . . . . . . . . . . . . .
                                                                              .....                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                                              ......



                                                                              ............










                                                         LEELANAU COUNTY
                                                   BOARD OF COMMISSIONERS


                                  Gerald N. Henshaw                                        Robert S. Weaver
                                  Chairman                                                 Vice Chairman


                                  Joseph F. Brzezinski                                     Leonard Olson
                                                            Robert R. Sutherland



                                                         LEELANAU COUNTY
                                                      PLANNING COMMISSION


                                  Daniel Heinz                                             Bruce Ettinger
                                  Chairman                                                 Vice Chairperson


                                  Barbara Cruden                                           Michael Jasinski
                                  David Coville                                            Steve Kalchik
                                  John Dozier                                              Richard N. Stein
                                  John Taylor                                              Margot Power
                                                             Lawrence Verdier



                                                    LEELANAU GENERAL PLAN
                                                       STEERING COMMITTEE


                                                            Gerald N. Henshaw
                                                                 Chairman


                        John Avis                           Dan Hubbell                         Richard Pleva
                        Gary Bardenhagen                    Richard Hufford                     Margot Power
                        JoAnne Beare                        Kalin Johnson                       Robert Price
                        Jack Burton                         Linda Johnson                       Larry Price
                        Stephen Chambers                    Colleen Kalchik                     Ed Reinsch
                        Lois Cole                           Edward Kazenko                      George Rosinski
                        Thomas Coleman                      Ray Kimpel                          Richard Sander
                        Barbara Collins                     Kay Kingery                         Charlene Schlueter
                        Shirley Cucchi                      Stu Kogge                           Kimberly Schopieray
                        Catherine J. Cunningham             Stan Kouchnerkavich                 Chris Shafer
                        Walter Daniels                      Fred Lanham Jr.                     Ruth Shaffran
                        Judy Egeler                         Elizabeth Lafferty-Esch             Thomas Shimek
                        Randy Emeott                        Don Lewis                           Derith Smith
                        Kathy Feys                          Dana Hoyle MacLellan                Dennis Stavros
                        Kathleen B. Firestone               Douglas Manning                     Harry Stryker
                        Mary Frank                          Larry Mawby                         Mitsume Takayama
                        Gary Fredrickson                    John McGettrick                     John VanRaalte
                        James Frey                          Ann Marie Mitchell                  Tom VanZoeren
                        Paul Gardner                        Jack Mobley                         David Viskochil
                        Alex Garvin                         Dave Monstrey                       Midge Werner
                        John Hardy                          John Naymick                        Ben Whitfield
                        Max Hart                            Mary Newman                         Ruth Wilber
                        Carl Headland                       Karen Nielsen                       Dick Wilson
                        Beverly Heinz                       Glen Noonan                                                 5/94















                             LEELANAU GENERAL PLAN

                    A Cooperative Project of Sixteen Local Governments






                                           Prepared by:

                                       Mark A. Wyckoff, AICP
                                       Mark A. Eidelson, AICP
                                   Planning and Zoning Center, Inc.



                                      In Cooperation with:

                               Timothy J. Dolehanty, Planning Director
                                Duane C. Beard, County Administrator
                                  Trudy J. Galla, Assistant Planner


                                                and


                               Policy Guidance / Oversight from:

                                   General Plan Steering Committee
                                Leelanau County Planning Commission
                               Leelanau County Board of Commissioners




                                           July 11, 1994











                                           LEELANAU GENERAL PLAN
                                                 PROJECT STAFF



                        Timothy J. Dolehanty                             Duane C. Beard
                        County Planning Director                         County Administrator


                        Trudy J. Galla                                   Karen J. Gleason
                        Assistant Planner                                Planning Department Secretary



                        Pat Stratton
                        Administrative Secretary









                                           LEELANAU GENERAL PLAN
                                      TECHNICAL ASSISTANCE STAFF



                                           Planning and Zoning Center, Inc.
                                                302 S. Waverly Road
                                                 Lansing, MI 48917
                                                  (517) 886-0555
                                                (517) 886-0564 FAX



                                         Mark A. Wyckoff, AICP, President
                                         Mark Eidelson, AICP, Senior Planner
                                      Brenda Moore, AICP, Community Planner
                                         Tim McCauley, Community Planner
                                     John Warbach, Ph.D., Research Associate
                                    Carolyn A. Freebury, Administrative Support
                                           Kelley Gettle, Support Specialist










         The Leelanau General Plan                                                                Project st7af









                                        THE LEELANAU GENERAL PLAN
                            Police Guidelines for Future Growth on the Leelanau Peninsula



                                               TABLE OF CONTENTS



         Preface


                Introduction   .....................................................                             i
                Process Used to Develop the Plan      ......................................                     ii
                Relationship to Local Planning and Other County Operations        ......................         ii
                Credit on Organization of the   Plan and Initial Creative Focus   ....................           iii
                General Plan Updates      ...............................................                        iii
                Perspective    ......................................................                            iii
                Principal Strategies   .................................................                         iii
                Citizen Benefits of the Plan    ...........................................                      v
                Organization of the Plan     ............................................                        vi
                Principal Goal   ....................................................                          vii


         Part One: Peninsular View


         Chapter 1: Intergovernmental Cooperation and Regional Context          ....................          1-1
                Policy Guideline: Intergovernmental Cooperation       ..........................              1-1
                The Intergovernmental Context       ......................................                    1-1
                Issues- of Greater than Local Concern     ..................................                  1-2
                Interjurisdictional Coordination Ethic   ...................................                  1-3

         Chapter 2: Preservation of.Peninsula Character       ................................                2-1
                Policy Guideline: Preservation of Peninsula   Character    .......................            2-1
                Description of Peninsula Character    ....................................                    2-1
                Major Threats     ..................................................                          2-5
                Visual Character Ethic    .............................................                       2-8
                A Strategy to Protect Visual Character      .................................                 2-8

         Chapter 3: Working with Nature       ...........................................                     3-1
                Policy Guideline: Working    with Nature    .................................                 3-1
                Environmental Features     ............................................                       3-1
                Environmental Threats      ............................................                       3-1
                Natural Resources      ...............................................                        3-2
                Stewardship Ethic      ...............................................                        3-2
                Environmental Protection Strategy     ....................................                    3-4

         Chapter 4: Balanced Growth        .............................................                      4-1
                Policy Guideline: Balanced Growth        ...................................                  4-1
                Context for Balanced Growth        .......................................                    4-1
                Balanced Growth Ethic      ............................................                       4-2
                Balanced Growth Strategy      ..........................................                      4-4



         The Leelanau General Plan                                                                Table of Contents
                                                                                                            Page I








            Chapter 5: Growth Guidelines and Decision Maps                  ...............................                       5.1
                     Policy Guideline: Managed Growth              ...................................                            5-1
                     Growth Management Tools             .........................................                                5-1
                     Community Types          ...............................................                                     5-2
                     TDR and PDR        ...................................................                                       5-4
                     P.A. 116      ......................................................                                         5-5
                     Concurrency       ....   * ...  " , * , " * *,, , ** * ,* " * * *, " , ,* , ,* , * , ** * ** * * ,* * ,   ,* 5-6
                     Village and Rural Service Districts         ....................................                             5-7
                     Capital Improvements Programs            ......................................                              5-7
                     Official Map     .....................................................                                       5-7
                     Linked Open Space System            .........................................                                5-7
                     Impact Assessment          ..............................................                                    5-9
                     Model Ordinances         ...............................................                                     5-9
                     Open Space Zoning          ..............................................                                    5-9
                     GIS and Data Support from the County              Planning Department          .................             5-9
                     Leelanau General Plan Decision Maps             .................................                          5-10
                              Future Land Use Map          .........................................                            5-10
                              Policies Map      .............................................                                   5-10
                              Transportation Map         ........................................                               5-11


            Part Two: Functional View


            Chapter 6: Natural Resources and the Environment                 .............................                        6-1
                     Introduction     ...................................................                                         6-1
                     Issues .... *     ...  * ' * ' * * * * ' '*** * " '* * '* ' * " ** * * ** * '' * * * '' * ...  * '' * * '    6-1
                              Air Quality    ...............................................                                      6-1
                              Water Quality       ............................................                                    6-2
                              Groundwater Quality          .......................................                                6-3
                              Woodlands and Hillsides         .....................................                               6-4
                              Sensitive Natural Features        ....................................                              6-5
                              Farmland     ................................................                                       6-6
                     A Framework for Future Policy          .......................... ............                               6-7
                     Natural Resources and Environmental             Protection Policies and Action       Statements       ...    6-9

            Chapter 7: Transportation           ...............................................                                   7-1
                     Introduction     ....................................................                                        7-1
                     Issues   ........................................................                                            7-1
                              Road Network        .............................................                                   7-1
                              Level of Service      ............................................                                  7-3
                     A Framework for Future Policy          .......................................                               7-5
                     Transportation Policies and Action Statements               ...........................                      7-7

            Chapter 8: Public Facilities and Physical Services              ...............................                       8-1
                     Introduction     ....................................................                                        8-1
                     Issues   ....... .........................................                                     * ** ' *   ** 8-1
                              Sewage Disposal         ...........................................                                 8-1
                              Water Supply      ..............................................                                    8-4
                              Stormwater Management             .....................................                             8-4


            Table of Contents                                                                                The Leelanau General Plan
            Page 2









                         Emergency Services       .........................................                         8-5
                         Administrative Facilities     ......................................                       8-5
                         Recreation Facilities    .........................................                         8-6
                         Library Facilities ............................................                            8-6
                         Solid Waste     ...............................................                            8-7
                 A Framework for Future Policy      .......................................                         8-7
                 Public Facilities and Physical Services Policies and Action      Statements      ...........       8-9

         Chapter 9: Non-Municipal Public Services           .....................................                   9-1
                 Introduction   ....................................................                                9-1
                 Issues  ........................................................                                   9-1
                         Electric Service   ............................................                            9-1
                         Gas Service     ................................................                           9-1
                         Telephone Service       ..........................................                         9-1
                         Radio Service    ..............................................                            9-2
                         Medical Facilities    ...........................................                          9-2
                 A Framework for the Future        ........................................                         9-3
                 Non-Municipal Public Services Policies and Action Statements             ................          9-3

         Chapter 10: Economic Development           .......................................                        10-1
                 Introduction   ...................................................                                10-1
                 Issues  .......................................................                                   10-1
                         Economic Trends       ..........................................                          10-1
                         Tourism Importance       ........................................                         10-3
                         Geographic Isolation     ........................................                         10-3
                         Fiscal Implications     .........................................                         10-3
                 Framework for Future Policy       .......................................                         10-3
                 Economic Development Policies and Action Statements              ....................             10-7

         Chapter 11: Human Services and Facilities          ...................................                    11-1
                 Introduction   ...................................................                                11-1
                 Issues  .......................................................                                   11-1
                         Lack of Reliable Data     .......................................                         11-1
                         Limited Fiscal Resources      .....................................                       11-1
                         Needs of Special Populations       ..................................                     11-2
                 A Framework for Future Policy      ......................................                         11-3
                 Human Services and Facilities Policies and Action Statements            ................          11-3


         Chapter 12: Land Use        .................................................                             12-1
                 Introduction   ...................................................                                12-1
                 Issues  .......................................................                                   12-2
                         Land Use Change       ...........................................                         12-2
                         Residential Sprawl/Development Pattern         ..........................                 12-3
                         Commercial and Industrial Development          ..........................                 12-5
                         Weak County and Local Planning Programs            ........................               12-5
                         Weak County and Local Zoning Programs            .........................                12-5
                         Lack of Subdivision Regulations       ................................                    12-7
                         Cumulative Impacts of Current Trends          ...........................                 12-7
                 A Framework for Future Policy      ......................................                         12-9
                 Land Use Policies and Action Statements         .............................                     12-13



         The Leelanau General Plan                                                                      Table of Contents
                                                                                                                   Page 3








           Chapter 13: Local and Peninsula Land Use Issues        ..............................               13-1
                  Introduction  ...................................................                            13-1
                  Local and Peninsula Land use Issues      .................................                   13-1


           Part Three: Implementation

           Chapter 14: New Institutional Structure for Improved Land Use Decision Making            ........   14-1
                  Introduction  ...................................................                            14-1
                  New Institutional Structure     ........................................                     14-1
                          Mutual Respect and Mutual Support       .............................                14-1
                          Local Planning Commissions and Governing       Bodies     ...................        14-2
                          County Planning Commission       ..................................                  14-4
                          County Planning Commission Structure        ...........................              14-9
                          County Planning Department Role        .............................                14-11
                          County Board of Commissioners Role        ...........................               14-13
                          Role of Other Governmental Agencies       ...........................               14-15
                          Relationship with Citizens and the General Public     ...................           14-15

           Chapter 15: General Plan Implementation         ...................................                 15-1
                  Introduction  ...................................................                            15-1
                  Process Leading to Plan Implementation       ...............................                 15-2
                          Plan Adoption Process      ......................................                    15-2
                          Establishment of Priorities for Strategic Initiatives   ...................          15-3
                          Mechanism for Updating the General Plan        .........................             15-3
                  Key Priorities  ..................................................                           15-3
                  Concluding Thought      ..............................................                       15-5    10


           Appendices

           Appendix A: Memorandum of Understanding            .................................                 A-1
                  Background    ....................................................                            A-1
                  Basic Participation   ...............................................                         A-1
                  Municipal Responsibilities    ..........................................                      A-2
                  County Responsibilities   ............................               ................         A-2
                  General Provisions    ...............................................                         A-3
                  General Understandings       ...........................................                      A-3

           Appendix B: History of the General Plan Planning Process        .........................            B-1
                  Introduction  ....................................................                            B-1
                  Opportunity for Creative Planning     .....................................                   B-1
                  Citizen Advisory Committee and General Plan Steering Committee           ..............       B-1
                  Public Participation  ...............................................                         B-2
                  The Go/No Go Decision      ............................................                       B-2


           Appendix C: Leelanau General Plan Working Papers          ............................               C-1

           Appendix D: Definition of Terms and Phrases        .................................                 D-1


           Table of Contents                                                                  The Leelanau General Plan
           Page 4












                                                       LIST OF FIGURES


          Figure   1-1:  Issues of Greater than Local Concern         ..............................                     1-5
          Figure   2-1:  Leelanau County Land Use / Land Cover            ............................                   2-1
          Figure   2-2:  Diagram of the Urban Sprawl Cycle          ...............................                      2-5
          Figure   2-3:  Population Trend      ............................................                              2-6
          Figure   3-1:  Environmental Strategy         .......................................                          3-5
          Figure   4-1:  Balanced Growth Strategy          .....................................                         4-3
          Figure   5-1:  Average Density is the Same          ...................................                        5-3
          Figure   5-2:  Transfer of Development Rights           .................................                      5-5
          Figure   5-3:  Concurrency       ...............................................                               5-6
          Figure   5-4:  Alternate Zoning Patterns       ......................................                          5-9
          Figure   7-1:  Vehicle Registration: 1984-1990           ................................                      7-4
          Figure   10-1: Percent Change in Housing Units           ...............................                     10-2
          Figure   12-1:  1 Section, First Division into Ten Acre Parcels         ......................               12-4
          Figure   12-2:  1 Section, Second Division 4 Parcels from Each Ten Acre Parcel                .........      12-4
          Figure   13-1:  Continuum of Interests       .....................................                           13-1



                                                         LIST OF MAPS


          Map    2-1:   Landforms and Open Space         ......................................                          2-2
          Map    2-2:   Landscape Districts     ...........................................                              2-2
          Map    3-1:   Inland Lakes     ................................................                                3-1
          Map    3-2:   Wetland Areas      ...............................................                               3-1
          Map    5-1:   Community Types        ............................................                              5-4
          Map    5-2:   P.A. 116 Enrolled Lands       ........................................                           5-6
          Map    5-3a:  Future Land Use Map - Agricultural Land           ...........................                  5-13
          Map    5-3b:  Future Land Use Map - Important Natural         Features      ....................             5-14
          Map    5-3c:  Future Land Use Map - Urban Areas           ..............................                     5-15
          Map    5-3d:  Future Land Use Map - Terrain         ..................................                       5-16
          Map    5-4a:  Policies Map - Community Types          .................................                      5-17
          Map    5-4b:  Policies Map - Sensitive Environments          .............................                   5-18
          Map    5-4c:  Policies Map - Public/Quasi-Public and Institutional       Facilities   ..............         5-19
          Map    5-4d:  Policies Map - Recreation Facilities       ...............................                     5-20
          Map    5-4e:  Policies Map - Other Facilities      ...................................                       5-21
          Map    5-5:   Transportation Map      ..........................................                             5-22
          Map    6-1:   Ozone Air Quality Standard       Exceeded   ..............................                       6-2
          Map    6-2:   Aquifer Vulnerability   ..........................................                               6-3
          Map    6-3:   Prime Forestlands    ............................................                                6-4
          Map    6-4:   Steep Slopes     ...............................................                                 6-4
          Map    6-5:   Critical Dunes     ..............................................                                6-5
          Map    6-6:   High Risk Erosion Areas       .......................................                            6-5
          Map    6-7:   Important Farmlands     ..........................................                               6-7
          Map    6-8:   Orchard Suitability    .....................................                       :  .....      6-7
          Map    7-1:   Road Classification System        ......................................                         7-2
          Map    7-3:   Airplane Facilities  .............................................                               7-2


          The Leelanau  General Plan                                                                         Table of Contents
                                                                                                                       Page 5








            Map    7-2:   1990 Traffic Accident Locations         ..................................                         7-2
            Map    7-4:   Railroad Facilities   .............................................                                7-2
            Map    7-5:   Average Daily Traffic Volumes         ....................................                         7-4
            Map    8-1:   County Facilities     .............................................                                8-3
            Map    8-3:   Municipal Facilities   ............................................                                8-3
            Map    8-2:   Public Water and Sewer Systems          ..................................                         8-3
            Map    8-4:   Fire / Emergency Service Areas         ...................................                         8-4
            Map    8-5:   Recreation Facilities     ............................................                             8-5
            Map    9-1:   Electric and Gas Services        .......................................                           9-1
            Map    9-2:   Communications Facilities        .......................................                           9-2
            Map    10-1:  Work Force Reporting Outside Leelanau County                ......................                10-4
            Map    10-2:  Residential SEV: 1984 and 1992             ................................                       10-4
            Map    11-1:  Per Capita Income      ...........................................                                11-2
            Map    12-1:  Land Use/ Cover        ...........................................                                12-1
            Map    12-2:  Agricultural Lands     ...........................................                                12-1
            Map    12-3:  Peninsula-Wide Zoning Pattern          ..................................                         12-7


            NOTEONMAPS.- While every effort has been made to assure the accuracy of the maps included in
            this document, it should be noted that they present information in a very general way. That is,
            elements of scale, data magnitude, and symbolization have contributed to serious generalization. For
            more detailed maps and information, contact the Leelanau County Planning Department.



                                                           LIST OF TABLES

            Table 8-1:    Municipal Public Facilities and Services          .............................                    8-2
            Table  10-1:   1990 Census and Projections           ..................................                         10-2
            Table  10-2:   Projected Population and Housing Units            ...........................                    10-2
            Table  10-3:   Seasonal Population ... *       ...   ' ' * ' ' * ' *...* " ' * ' * * *.... * " *' * * ****'     10-4
            Table  12-1:   Population Per Square Mile: 1940 - 1990             ..........................                   12-3
            Table  12-2:   Local Plan Components           ......................................                           12-6
            Table  12-3:   1989 Local Land Area by Zoning Classification            (in acres)    ...............           12-8
            Table  12-4:   1989 Buildout Analysis          ......................................                           12-8


            Photo Credits

            Front Cover - Lake Michigan shoreline north of Empire (Michigan Travel Bureau)
            Preface Divider - Fishermen on Lake Leelanau (Leelanau Enterprise)
            Part One Divider - Bumper apple crop (Mark A. Wyckoffl
            Part Two Divider - Calm of winter (Leelanau Enterprise)
            Part Three Divider - Fishing net (Michigan Travel Bureau)
            Appendices Divider - Summer flowers (Leelanau Enterprise)
            Back Cover - A new day fLeelanau Enterprise)





            Table of Contents                                                                            The Le-e-lanau General Plan
            Page 6








                                           DEDICATION


                This General Plan is dedicated to the present and future generations of the
          Leelanau Peninsula. The Plan is dedicated to the belief that the current residents of
          the county hold the peninsula in trust, with a responsibility to pass it on to future
          generations in at least as good a condition as we received it from those who came
          before us. It is further dedicated with thanks for the generous labor, creative
          thoughts and commitment of the hundreds of citizens who contributed to this effort.










                       NN,

                                                      :41                                                                   T






































                                            16




                                                                           P"FACE




        INTRODUCTION                                 PREFACE       In response, the County Planning
                                                               Department with the assistance of the County
           The Leelanau General Plan was developed             Planning Commission and County Board of
        with the support and guidance of citizens and          Commissioners created a 60 + member Citizen
        representatives of all local governments in            Advisory Committee (CAC). The CAC, in a
        Leelanau County to offer an overview with              series of meetings beginning in December,
        inner consistency on the issues of future              1989 and ending in July, 1990, made
        peninsular land use.     It is founded on the          recommendations for a new plan with a
        principle that all land use and infrastructure         broader focus and greater support than the
        decisions that do not involve issues of greater        type    of    plan   traditionally     prepared
        than local concern should be made at the local         independently      by   a   County      Planning
        level. These decisions should be carefully             Commission.
        coordinated with adjacent jurisdictions and
        appropriate county agencies. The plan looks to             Each local governmental unit in the county
        a continuing partnership between the county            entered into a mutual agreement (in the form
        and local units of government in the                   of a memorandum of understanding) to
        achievement of the shared vision described in          participate with the county in the development
        this plan. The partnership can be built on             of a general plan which would look in a
        mutual respect in areas of overlapping                 coordinated manner at the issues and
        responsibilities and mutual support in areas           alternatives for guiding growth on the
        .where   responsibilities  are separate       but      peninsula. The agreement is reproduced in
        compatible in pursuit of common goals and              Appendix A.
        benefits. It is envisioned that future local
        comprehensive plans will be compatible with                This planning process represented an
        the Leelanau General Plan, but more specific           unprecedented commitment in the state of
        with regard to land use and local implementing         Michigan on the part of both a county and
        policies.                                              local units of government.          Each local
                                                               government agreed to:
           The   Peninsula Chamber of Commerce
        provided the initial impetus for the public            0   participate, fully and freely, in the process
        participation process which led to development             by appointing one elected official, one
        of this plan. The public concern for improved              planning commissioner, and one citizen-at-
        growth management was first published in an                large to participate;
        economic development task force report
        sponsored jointly     by the Chamber of                0   communicate all suggestions via the
        Commerce and        the    County Board        of          participation process;
        Commissioners.       The   county board had
        expressed concern    over fragmented planning          0   participate fully in the various forums,
        on the peninsula and the apparent lack of value            seminars, workshops, and other meetings
        received on 1.5 million dollars spent in the               scheduled as a part of the process;
        prior decade on planning activities. In light of
        a significant number of severe development             0   accept, review, discuss, and respond to all
        controversies, the county board desired to                 reports, working papers, documents, etc.
        make county planning and planning county-                  produced relative to the plan;
        wide more effective, or spend less money
        (perhaps none) if there were no meaningful role        *   provide without cost needed data, reports,
        for the county in planning activities.                     and other information.



        The Leelanau General Plan                                                                         Preface
                                                                                                          Page i








               In turn, the county agreed to:                           developers, environmentalists, or local
                                                                        governments as "the enemy". Recognition
           ï¿½   coordinate and pay the costs of preparation              of this fundamental can change the
               of the county-wide growth management                     dynamics of growth management from "us
               plan;                                                    against them" to "we're all in this
                                                                        togethern.
           ï¿½   conduct basic planning research and
               mapping.                                                 Fourteen working papers (listed on Page ix)
                                                                    document key input and findings on the route
               It is hoped the Leelanau General Plan is not         to preparation of this plan. Working Papers #6
           merely a "county plan" even though it has                and    #12    are especially significant in
           been adopted by the County Planning                      documenting the shared common vision.
           Commission and approved by the County
           Board of Commissioners.           Instead, it is
           intended to be a plan that affects the lives of          The process followed to create this plan has
           all peninsula residents and visitors on a daily          attemptedto create a shared common vision of
           basis. It is not intended to be as detailed as           the future.
           local comprehensive plans usually are, but
           rather to address the broader issues, and
           especially the multi-jurisdiction issues from a
           peninsula-wide perspective.                              RELATIONSHIP TO LOCAL PLANNING AND
                                                                    OTHER COUNTY OPERATIONS
               The ultimate success       of the Leelanau
           General Plan will largely depend on the                      This General Plan is intended to guide the
           commitment that is made to implementation.               actions of the County Planning Commission
           Commitment will need to come from every                  and many of the priorities of the County
           local government, the county, the various state          Planning Department. It will also play a major
           and federal authorities as well as a broad               role in guiding future public facility and
           spectrum of county citizens. It would be easy            infrastructure decisions by the County Board of
           to   ignore    addressing      the    issue     of       Commissioners and other county departments
           implementation in the General Plan, but that             and    commissions      (such as the Road
           would only delay discussion on this most                 Commission)      after capital      improvement
           important issue until much later, and forego             programs compatible with the Plan are
           several opportunities for meaningful public              prepared. Part Three focuses on these issues
           input. As a result, Part Three of this plan              and the institutional changes that need to
           proposes an implementation strategy.                     occur for this goal to be accomplished.

                                                                        it is believed that common pursuit of the
           PROCESS USED                                             policy guidelines in this plan will encourage
           TO DEVELOP THE PLAN                                      support and ultimately lead to integrated and
                                                                    coordinated planning throughout the peninsula.
               Broad citizen involvement was encouraged             It is hoped a new mutually supportive working
           by the Citizens Advisory Committee whose                 relationship between the county and local units
           opinion is reflected in the following quote from         of government on the peninsula can build from
           an early working paper:                                  the positive experience achieved by the many
                                                                    local government officials and citizens who
               "Involving people in   the planning process          significantly participated in the development of
               means acknowledging that everyone has                this plan.
               something of value to contribute.         This
               system seeks to avoid setting up citizens,



           Preface                                                                             The Leelanau General Plan
           Page ii









        CREDIT ON ORGANIZATION OF THE PLAN                        agriculture nor tourism (the mainstays of the
        AND INITIAL CREATIVE FOCUS                                economy for decades), rather it is the
  40                                                              construction of new single family homes. Over
            The authors of this plan wish to                      2650 new dwellings were constructed in the
        acknowledge that the structural organization of           county between 1980 and 1993. Almost all of
        the Leelanau General Plan owes some of its                this development activity has been on large
        existence to the award winning 1990 Howard                lots scattered along existing roads throughout
        County (Maryland) General Plan. That plan                 the county. ff the low density residential
        received a prestigious American Planning                  sprawl pattem of most of the growth on the
        Association Award in 1991.           The simple           peninsula in the last two decades continues,
        straightforward organization of that plan, the            however, it will destroy the present character
        names of some of its chapters and the                     and traditional economic vitality of the
        contents of its decision maps strongly                    peninsula. Each new dwelling on prime orchard
        influenced the structure and maps in this plan.           or forest land not only permanently converts
                                                                  that land out of renewable resource use, but
            For its initial creative stimulus, the General        also creates a new public service burden and
        Plan also recognizes the Intergovernmental                contributes to rising taxes on the farmer -
        Growth Management Consortium.                  This       making it more difficult for the farmer to stay
        consortium of Michigan communities seeks                  in business.
        new ways to use existing laws, as well as
        supports the passage of new laws to enable                   Citizens and local government officials
        local governments to better manage growth.                basically have two choices: maintain the status
        Leelanau County is a member of the                        quo and accept a diminished quality of life or
        Consortium.                                               change destructive development patterns. This
                                                                  General Plan advocates the latter.


        GENERAL PLAN UPDATES
                                                                  PRINCIPAL STRATEGIES
            The General Plan is founded on mutually
        supportive relationships in pursuit of mutual                The Leelanau General Plan proposes a more
        goals. To ensure that these relationships and             compact land development pattern that
        goals remain mutual, it will be important to              protects renewable resource lands (such as
        periodically reexamine the plan and update it.            orchard land and forests) as well as sensitive
        Chapter 16 advocates the preparation of                   natural resources (like wetlands and dunes). It
        annual reports to document actions taken to               proposes policies to encourage location of
        implement the plan as well as the preparation             future land development in and near existing
        of annual work programs and budgets. The                  villages, as well as near Traverse City. It
        Leelanau General Plan will be thoroughly                  proposes infrastructure management policies
        reviewed and updated at least every five years            to achieve and reinforce this land use pattern.
        to ensure it continues to reflect a common                It  encourages the         development and
        vision for the future of the Leelanau Peninsula.          implementation of a transfer of development
                                                                  rights program (TDR) to accomplish open
                                                                  space    protection,    while     simultaneously
        PERSPECTIVE                                               permitting large landowners an opportunity to
                                                                  capture the development value of their land.
            The Leelanau General Plan assumes future              Open space zoning and rural clustering
        growth will occur at about the same rate in the           techniques are also proposed to encourage
        next 20 years as in the recent past. At the               new development in rural areas to be sited so
        present time, the most significant economic               as to minimize visual impacts on the landscape
        development activity in the county is neither             and to minimize public service costs.



        The Leelanau General Plan                                                                             Preface
                                                                                                             Page &







              The plan proposes measures to protect the              * create new year-round jobs
           small-town, rural character of peninsula
           villages and the scenic qualities of the major            0  guide new development where public
           road corridors. Using naturally occurring                    services are adequate or efficiently added
           vegetation for landscaping, minimizing signs,
           burying utilities, placing parking at the side or         0  phase future growth
           behind commercial buildings are all measures
           proposed to retain the existing character of the          0  seek to achieve a better balance between
           peninsula.                                                   the location of jobs/housing/ transportation

              More specifically, the plan proposes an                0  protect agricultural operations
           environmental protection strategy that also:
                                                                     a  protect sand and gravel resources
           ï¿½  identifies and avoids development near
              sensitive environments                                 0  address     equity    concerns      of    large
                                                                        landowners in the implementation of
           ï¿½  protects water quality of surface water and               development regulations
              ground water
                                                                     0  improve educational opportunities
           ï¿½  minimizes land fragmentation of large
              parcels                                                0  improve health and human services.

           ï¿½  links open spaces
                                                                        Additional tools to be used to better
           ï¿½  restricts keyhole development                          manage growth include:

           ï¿½  protects renewable resources.                          *  increased promotion of carefully considered
                                                                        PA 116 enrollments
              The plan proposes widespread acceptance
           by citizens of a stewardship ethic that views             *  the use of a peninsula-wide transfer of
           land not as an asset to be exploited, but rather             development rights program to address
           as a resource held in trust for future                       landowner equity interests while still
           generations for use by the present generation.               protecting renewable resources

              The Leelanau General Plan is neither a slow            0  concurrency requirements so new
           growth nor an anti-growth plan. It calls for                 development occurs after necessary public
           balanceo' growth that is carefully guided to                 facilities are in place (not before)
           protect and enhance the quality of life on the
           peninsula. It accepts the principle that                  0  village and rural service districts to define
           environmental     protection and        economic             what services will be available where and
           development are not incompatible objectives.                 when
           It recognizes that a healthy economy depends
           on a healthy environment. To these ends the               9  capital improvement programs to better
           following general strategy is proposed:                      guide development of new public facilities.

           ï¿½ curtail sprawl and encourage compact                    0  development of a county-wide map to
              development                                               identify the location of all new future public
                                                                        facilities
           ï¿½ protect and enhance the existing economic
              base




           Preface                                                                              The Leelanau General Plan
           Page iv









          ï¿½  development       of   impact     assessment           0  as the basis for more detailed township and
             procedures and checklists                                 village plans and development ordinances.

          ï¿½  development of model local ordinances                  0  as a framework for private investment in
                                                                       the county.
          ï¿½  further enhancements to the County
             Planning Department's data center function             0  as an aid to village, township, and county
             and Land Information System including                     public facility and infrastructure decisions.
             shifting to a full geographic information
             system.                                                0  as a guide to the County Planning
                                                                       Commission in fulfilling its responsibility to
                                                                       review      proposed      public facility
             The plan recognizes special needs for                     expenditures, and township plans and
          affordable housing and jobs among a growing                  zoning amendments.
          segment of the year-round residents. It also
          recognizes the growing economic disparity                 0  as a guide in improving protection of air
          between persons of different age and income                  and water quality.
          classifications.
                                                                    *  as a guide to improved long term resource
             The General Plan recognizes important roles               management decisions, especially with
          for the county in the provision of:                          regard to renewable resources, critical plant
                                                                       and    animal    habitats,    and     sensitive
          ï¿½ data                                                       environments.


          9  maps                                                   0  as the basis for joint village / township
                                                                       county grant utilization activities.
          ï¿½  coordination and communication
                                                                    *  as an organization plan for county program
          ï¿½  technical assistance                                      expenditures

          ï¿½  model plans and ordinances                             0  as a means of facilitating intergovernmental
                                                                       cooperation (e.g., with not only the county
          ï¿½  capital improvement programming                           and local units of government, but also
                                                                       with area schools, the National Park
          ï¿½  conflict resolution                                       Service, the Soil Conservation Service, the
                                                                       Grand Traverse Band of Ottawa and
          ï¿½  training                                                  Chippewa Indians, MDOT, Benzie and
                                                                       Grand Traverse Counties, the Northwest
          ï¿½  limited      financial      support        and            Michigan Council of Governments, etc.).
             encouragement of local planning
                                                                       to define issues of greater than local
          ï¿½  assistance in passage of new legislation to               concern     and     establish     appropriate
             improve the range of available tools to                   mechanisms to deal with those issues.
             manage growth.


                                                                    CITIZEN BENEFITS OF THE PLAN
             A list of the principal issues in which
          guidance from this plan is likely to be sought               If implemented as presented, this plan will
          are presented below.                                      benefit the average citizen in the following
                                                                    ways:



          The Leelanau General Plan                                                                             Preface
                                                                                                                Page v








            ï¿½  taxes will be lower than they would be if                 inefficiency.
               the plan were not implemented because
               future infrastructure and public services             0   public services will be adequate to meet
               supported by property taxes will be                       the needs of a diverse population.
               incrementally provided in compact areas as
               needed, rather than spread widely across              0   developers will find, over time,       greater
               much of the peninsula.                                    uniformity in local land use regulations
                                                                         across the county.
            ï¿½  owners of agricultural and forest land will
               have improved opportunities for success               0   development of coordinated planning
               due to reduced pressures from non-farm                    objectives and ordinances between and
               residences and will have new opportunities                among all the local jurisdictions will greatly
               to capture the development value of their                 benefit all because conflicts and variations
               land without dividing and selling it for                  will be reduced. Such a concept should in
               residential development.                                  no way affect the autonomy of local
                                                                         governments with respect to implementing
            ï¿½  children of current residents will have                   their ordinances. Compatibility throughout
               opportunities to continue to live and work                the county, however, will enhance the
               within the county in affordable homes and                 character, future growth, development, and
               at jobs that provide an income sufficient to              economic well being of constituencies of
               support a family.                                         the county.     Such consistency will add
                                                                         legal strength by minimizing challenges and
            ï¿½  there will be many different types of                     interpretations.
               housing opportunities to meet the needs of
               young and older families, "empty nesters,"
               retirees, and persons with special needs.                 For a more detailed description of life on
                                                                     the peninsula when this plan is implemented
            ï¿½  there will continue to be large expanses of           (See Chapter 3 of Working Paper 12).
               orchards, woods and other open spaces
               across the peninsula for many years to
               come.                                                 The Leelanau General Plan recognizes that if
                                                                     the low density residential sprawl pattem of
            ï¿½  the unique beauty of the peninsula will               most of the growth on the peninsula in the last
               continue to be largely maintained.                    two decades continues, it will destroy the
                                                                     present character and economic vitality of the
            ï¿½  sensitive natural features like wetlands,             peninsula. Citizens basically have two choices:
               floodplains, dunes, and unique plant and              maintain the status quo and accept a
               animal    habitat will receive greater                diminished quality of life or change destructive
               protection over time, increasingly through            development pattems.
               acquisition of key properties by land
               conservancies.

            ï¿½  new jobs will be encouraged in areas where            ORGANIZATION OF THE PLAN
               public services are available and adequate
               to meet the needs.                                        The Leelanau General Plan is organized into
                                                                     three major parts. Part One examines issues
            ï¿½  local and county governmental agencies                from a peninsular view. It presents a
               will more closely coordinate planning and             comprehensive description of the character of
               the provision of other public services to             the Leelanau Peninsula and the key policy
               eliminate unnecessary overlap, gaps and               guidelines proposed to protect and enhance the


            Preface                                                                             The Leelanau General Plan
            Page vi










        quality of life on the peninsula. Part Two takes         land use, infrastructure and public service
        a traditional "functional" view of issues and            decisions. It includes policy guidelines and a
        proposed policy initiatives to address them.             brief description of key planning tools to
        Specific policies and action statements                  achieve the following goal:
        generated from extensive citizen input in seven
        functional    areas    (such    as   land     use,       It is the principal goal of the Leelanau General
        transportation, natural resources, etc.) are             Plan to establish a strategy for guiding growth
        presented to supplement and support the                  that protects, and where possible, enhances
        general    growth      management        strategy        the unique character of and quality of life on
        presented in Part One. Part Three presents the           the peninsula. To that end, the General Plan
        structure for and major efforts to be initiated          focuses on balancing environmentalprotection,
        to implement the Leelanau General Plan. It               resource management and economic
        includes a proposed improved institutional               development so as to provide a foundation for
        structure for planning decisions and identifies          a sustainable economy that permits long term
        the priority actions that should first be taken to       prosperity for a# present and future Leelanau
        implement the General Plan.                              County residents. The balance so achieved
                                                                 should not sacrifice environmental quality
                                                                 when reasonable and prudent development
        PRINCIPAL GOAL                                           alternatives exist. This plan recognizes that a
                                                                 healthy economy depends on a healthy
           The major purpose of the Leelanau General             en vironmen t. A chie vemen t of this goal means
        Plan is to record a consensus based growth               protecting the integrity of the land base for use
        strategy developed over several years. It is             by present generations without unnecessarily
        intended for joint use by Leelanau County and            compromising the options of future
        local governments within the county in making            generations.
        coordinated and mutually supportive future














                                         4T]
                                                                    7@4
                                                                                                                    0





                                                                                             J,j
                                                                                                         At        J






        The Leelanau General Plan                                                                             Preface
                                                                                                             Page W






                               FIVE POLICY GUIDELINES FOR GUIDING GROWTH
                                           ON THE LEELANAU PENINSULA

          Policy Guideline:                                         met are accommodated with a variety of land
          Intergovernmental Cooperation                             uses in the pattern proposed and in a manner
          A partnership founded on mutual respect and               which does not unnecessarily compromise
          mutual support in achievement of the common               options for future generations.
          goals of this General Plan should guide the
          development and implementation of new                     Policy Guideline:
          relationships between the county and local                Managed Growth
          units of government in the county and                     Local comprehensive plans and local
          between the county and adjoining counties in              development regulations (including for
          the region.                                               example, zoning and subdivision regulations]
                                                                    should be updated and thereafter maintained.
          Policy Guideline:                                         to include goals, objectives, policies and
          Preservation of Peninsula Character                       strategies for managing future growth
          The existing natural andpeople-made features              compatible with the Leelanau General Plan.
          on the peninsula that make up its rural                   Local plans should include more specific land
          characterare interdependent with the activities           use and density proposals at the parcel-specific
          that comprise its economic base. It is                    level. Localregulations should focus on design
          important therefore, that future land use                 and other issues of local significance. Public
          change on the peninsula enhance, not                      facilities should a# be constructed according to
          undermine the character of the area around it,            local capital improvement programs that are
          and in so doing contribute to protection of the           coordinated at all governmental levels on the
          unique rural character of the entire Leelanau             peninsula.
          Peninsula.


          Policy Guideline:
          Working with Nature
          Extensive and diverse sensitive naturalfeatures
          found throughout provide the foundation for
          the present and the future quality of life on the.
          peninsula. They should be protected where
          pristine, restored where damaged, and have
          access and use managed for long term
          sustainability.

          Policy Guideline:
          Balanced Growth
          New residential, commercial, and industrial
          development on the peninsula is encouraged'
          provided it is: 1) in locations with public
          services adequate to meet its needs, 21
          environmentally friendly, 3) consistent with the
          character of development in the area, 4)
          consistent with local plans and regulations,
          and 5) compatible with the guidelines of this
          General Plan. In the implementation of this
          policy guideline, both the county and local
          governments would seek to ensure over- time,
          that all the health, safety, and general welfare
          needs of its citizens that can be reasonably


          Preface                                                                              The Leelanau General Plan
          Page vid









                                    LEELANAU GENERAL PLAN
                                          WORKING PAPERS



        Working
        Paper
        Number                            iwe                                              Date Issued

          1    Results of the Leelanau County Growth Management Forums                      March, 1990

          2    A Survey of Citizens Concerning Issues Related to Long-Range
               Planning in Leelanau County                                                    June, 1990

          3    A Survey of Local Officials Concerning Issues Related to
               Long-Range Planning in Leelanau County                                         June, 1990

          4    Final Recommendations of the Citizens Advisory Committee                       April, 1991

          5    Leelanau Peninsula Current Trend Future: Implications
               of "Business as Usual"                                                  September, 1991

          6    Goals and Objectives for Managing Growth on the Leelanau
               Peninsula                                                               September, 1991

          7    Economic Development                                                           May, 1992

          8    Transportation, Public Facilities and Physical Services                        May, 1992

          9    Natural Resources and the Environment                                       August, 1992

          10   Land Use                                                                 November, 1992

          11   Demographics                                                             November, 1992

          12   Alternative Futures                                                          March, 1993

          13   Public Comments on the Draft Leelanau General Plan                           March, 1994

          14   Leelanau County Facilities Strategy / Long Range Plan                        March, 1994



                                            RELATED REPORTS


               Leelanau County Human Services Review                                        March 1993


        A Summary of each working paper listed above is included in Appendix C.




        The Leelanau General Plan                                                                   Preface
                                                                                                   Page ix











                       ldl@
                                                                                       44.
                               Iva                                     IF V,
               C17 @5                                                                                                 Ar
                                                               Alr

                                                       if

                                                   le@
                                                          "Pow


                                                                                '40



                                                                                                           NA





                                                                                         iw"

                         Part One so
                                                                           INSULAR VIEW









          PART ONE: PENINSULAR VIEW


              Part One of the Leelanau General Plan
          presents a comprehensive description of the
          character of the Leelanau Peninsula and the
          key policy guidelines proposed to protect and
          enhance the quality of life on the Peninsula. It
          is divided into five chapters:

              Chapter 1: Intergovernmental
              Cooperation & Regional Context

              Chapter 2: Preservation of Peninsula
              Character


              Chapter 3: Working with Nature

              Chapter 4: Balanced Growth

              Chapter 5: Growth Management Policy
              Guidelines & Decision Maps












                                7,
                                 7-           VjrAj&-"

















                                                        7









                                                                                                                                 10



          Beach south of Leland. Whaleback Hill is in the background.



          The Leelanau General Plan - Peninsular View









                                                              Chapter 1

                                       INTERGOVERNMENTAL COOPERATION
                                                AND REGIONAL CONTEXT


         POLICY GUIDELINE:                                              *   County involvement in an advisory capacity
         INTERGOVERNMENTAL COOPERATION                                      is generally begrudgingly accepted, ignored,
                                                                            or actively opposed.
             A partnership founded on mutual respect
         and mutual support in achievement of the                       0   Governing bodies often do not share the
         common goals of this General Plan should                           same common vision of the future as do
         guide the development and implementation of                        the planning commissions.
         new relationships between the county and
         local units of government in the county and                    0   Each community acts without officially
         between the county and adjoining counties in                       noting the impact of its decisions on
         the region.                                                        adjoining jurisdictions.


         THE INTERGOVERNMENTAL CONTEXT                                  Localofficials'attitudes on many development
                                                                        issues are often more pro-development than
             The preface includes a description of the                  those of the constituency they serve.
         history of the efforts which led to the creation
         of this General Plan. A key opinion of many
         citizens and local officials in the county is that                 Common        problems with the "usual
         the usual historical approaches to planning on                 approach" to planning on the peninsula were
         the peninsula have not achieved a desirable                    identified in Working Paper #4 and expanded
         result. The "usual approach" to planning and                   upon in Working Paper #12. These problems
         development regulation as described in                         include the following:
         Working Paper #12 includes the following
         characteristics:                                               9   Lack of internal consistency of local plans.
                                                                        9   Inadequate         (and     liability     prone)
         ï¿½   Each of the sixteen jurisdictions in the                       administration of local zoning.
             county has its own zoning ordinance.                       *   Lack of interjurisdictional coordination.
                                                                        a   Lack of a "big picture" view.
         ï¿½   Few jurisdictions have a current master or
             comprehensive plan as the basis of their
             zoning regulations, four have no plan.

         ï¿½   The county plan was obsolete (it              was
             adopted in 1975 and never updated).

         ï¿½   Local jurisdictions generally do not initiate
             efforts to coordinate local planning           and
                                                                                                      W    _Z
             zoning activities with each other.                                                                                 QZ

                                                                                   M
             Analysis of surveys has revealed that local
             officials' attitudes on development issues
             can often be more pro-development than
             those of the constituency they serve (see                                                          I@W
             Working Paper #2 and #3).                                  Kasson Township Hall


         The Leelanau General Plan - Peninsular View                        Intergovernmental Coo7d-ination and Regional Context
                                                                                                                      Page 1-1








          ï¿½   Lack of maintenance of the master plan and             (see Figure 1-1).
              regulations after adoption.
          ï¿½   Disproportionate influence of often illusory           0  air quality protection.
              promises of new jobs and tax base on                   0  watershed management for water quality
              future land use decisions.                                protection.

          ï¿½   Lack of widespread support for a common                0  groundwater and well-head protection.
              vision required for implementation.
                                                                     0  habitat preservation for sustainable fish and
          These conditions led the Citizens Advisory                    wildlife populations.
          Committee (CAC - which recommended
          creation of this plan) to reach the following              e  protection of unique and endangered
          conclusions:                                                  species.

              'Over  $1,500,000 local tax dollars were               @  protection of sensitive environments
          spent on attempts to manage growth in                         (wetlands, dunes, floodplains, high risk
          Leelanau   County during the decade of the                    erosion areas, etc), especially the large
          1980's.    The end result is sixteen (16)                     contiguous ecosystems like the Solon
          individual planning and development control                   Swamp, the Crystal River, Sleeping Bear
          efforts in the state's second smallest county.                Dunes.
          The principal result has been an acceleration in
          fragmented development which isstraining the               *  resource protection necessary to sustain
          county's quality of life.                                     resource-based       industries such as
                                                                        agriculture and forestry.
              It is the conclusion   of the CAC that the
          fragmented planning and development effort                 0  sustainable economic development to
          has not worked and must be overhauled for                     provide jobs for present and future
          the sake of present and future generations. A                 residents.
          unified effort reflecting on the county as a
          geographic area - not solely as a unit of                  *  loss of open space and scenic views along
          government - must be initiated. The effort                    key corridors.
          must be broad-based and internalized by the
          citizenry. A shared vision of the future must be           0  harbors.
          the basis of growth policies. Only then will the
          planning process achieve maximum public                    0  keyholing on lakes which lie in multiple
          support and benefit.                                          jurisdictions.

                                                                     *  use of public access sites.
          ISSUES OF GREATER THAN LOCAL CONCERN
                                                                     0  establishment of new public parks and
              One common thread running through the                     access sites on waterfronts.
          above list of problems associated with the
          "usual approach" to planning and zoning on                 *  existing public parks (national, state and
          the peninsula, is the lack of means to deal with              local).
          issues of greater than local concern.
                                                                     0  safe, efficient and environmentally sound
              Public interests that are broader than simply             roads and highways connecting our
          local interests include (but are not limited to)              communities.
          the following. Some are illustrated on page 1-5


          Intergovernmental Coordination and Regional Context                   The Leelanau General Plan - Peninsular View
          Page 1-2









          ï¿½   public sewer and water services.                            time, an impact on the character of the entire
                                                                          peninsula (indeed, on the entire region). In
          ï¿½   infrastructure serving more than one                        addition, citizens increasingly recognize that
              community, or being extended farther than                   they primarily live in a geographic region,
              necessary.                                                  instead of merely a single jurisdiction as did
                                                                          our ancestors. For example, people who live in
          ï¿½   land use along municipal borders.                           community A may shop in community B. They
                                                                          may go to school in community C, be
          ï¿½   large scale development impacts beyond                      entertained in community D, and work in
              municipal boundaries (e.g., large          resorts,         communities E and F. They may do all of this
              industrial facilities or large shopping                     in the same day. All citizens are citizens of a
              facilities, airports).                                      single jurisdiction, of a county, and of a region.
                                                                          Each has a stake in the future of the local unit
          ï¿½   LULU's (locally unwanted land uses that                     of government in which they live, in the
              meet a regional need, such as gravel pits,                  county, and in the region. Businesses and
              junk yards, landfills, towers, etc.).                       industries also share this same stake.

              solid and hazardous waste disposal and
              recycling centers.                                          The interjurisdictional coordination ethic
                                                                          recognizes that land use and infrastructure
              public economic development initiatives.                    decisions of each governmental unit have, over
                                                                          time, an impact on the character of the entire
              affordable housing.                                         peninsula.

              needs of the handicapped, children, the
              elderly, and other special populations.

              adequate *social services for citizens with
              temporary or special needs.

              adequate educational opportunities for all
              citizens.


              a sovereign nation within the county
              making independent land use decisions.


              In many instances, these broader public
          interests revolve around common environ-
          mental features (which do not respect
          municipal boundaries), infrastructure, and the
          needs of special populations.



          INTERJURISDICTIONAL
          COORDINATION ETHIC
                                                                              M L

              The interjurisdictional coordination ethic
          recognizes that land use and infrastructure
          decisions of each governmental unit have, over
                                                                          Grand Traverse Band Government Center


          The Leelanau General Plan - Peninsular View                        Intergovernmental Coordination and Regional Context
                                                                                                                        Page 1-3








              If the mutual goals of this General Plan are             one significant benefit of a successful
           to be achieved, it will take the coordinated            county-local partnership with broad based local
           efforts of all units of government working              support will be the additional leverage it gives
           together to achieve them.          Future local         in dealing with Lansing and Washington, D.C.
           comprehensive plans in villages and townships           bureaucracies. Coalition building, partnerships
           in the county will relate to the Leelanau               and collaboration are not just buzz words, they
           General Plan, but will be more specific with            are the foundation for future success in an era
           regard to land use. They will also be tied to           of shifting responsibilities and shrinking
           implementation via local zoning and subdivision         resources.      Strong      intergovernmental
           regulations and focused on protection of local          cooperation founded on mutual respect and
           quality of life. Local plan relationship with the       mutual support in achievement of the common
           Leelanau General Plan will be the focus of the          goals of this General Plan is fundamental to a
           County Planning Commission's review and                 better future for Leelanau Peninsula.
           approval/disapproval, as required by Section 8
           of the Township Planning Act (Act 168, P.A.
           1959).










                                                    At




                                                                                                            Al.
































           The Maple Valley Nursing Home near Maple City.


           Intergo vernmen tal Coordination and Regional Context              The Leelanau General Plan - Peninsular View
           Page 1-4









                                                    Figure 1-1
                             ISSUES OF GREATER THAN LOCAL CONCERN

                                                         FISH & WILDLIFE
                                       LOSS OF           HABITAT
                                       OPEN SPACE        PROTECTION             PROTECT
                                                                                CORRIDOR
                 PROTECTION OF               . ......                        .,-VIEWS
                 SAND DUNES




















                                                   . ........ . .
                                                                   ........ ... ......

                                                Z


                  PROTECTION
                                                          .. ............
                                          ... .....  ...
                  OF FLOODPLAINS
                                            PROTECTION                       WATERSHED
                                            OF WETLANDS                      MANAGEMENT
                                                                             BUFFER ZONE

                                                                                GRAVEL PIT
                                                         INFRASTRUCTURE
                                                         EXTENDED
                         SOLID WASTE
                         DISPOSAL
























                   LAND USE ALONG
                   MUNICIPAL BORDERS
                                              EXISTING VILL GE                LAIR       LE
                                                                              DEVELOPMENT



        The Leelanau General Plan - Peninsular View             Intergovernmental Coordination and Regional Contexi
                                                                                                    Page 1-5









                                                                 Chapter 2
                                     PRESERVATION OF PENINSULA CHARACTER



          POLICY GUIDELINE: PRESERVATION                                    open land, 14% lakes and wetlands, and 6%
          OF PENINSULA CHARACTER                                            urban land. The pie chart below illustrates the
                                                                            land use/cover relationship in 1990. (See
              The existing natural and people-made                          Figure 2-1).
          features on the peninsula that make up its rural
          characterare interdependent with the activities
          that comprise its economic base. It is                            The character of the Leelanau Peninsula is a
          important therefore, that future land use                         mixture of farms, orchards, forests, sand
          change on the peninsula enhance, not                              dunes, wetlands, dvefs, lakes, bays, hills,
          undermine the character of the area around it,                    valleys, resorts and villages.
          and in so doing contribute to protection of the
          unique rural character of the entire Leelanau
          Peninsula.                                                            But Leelanau County has a rural character
                                                                            that is much more than mere numbers can
          DESCRIPTION OF                                                    adequately convey. The outstanding quality of
          PENINSULA CHARACTER                                               the Leelanau Peninsula is its unusually varied
                                                                            topography. As the photos throughout this
              Leelanau County can be described in many                      plan illustrate, it is a peninsula of significant
          ways. In purely numerical terms, it is nearly                     natural beauty. It is the home of a major
          24% agricultural land, 40% wooded land, 15%                       national park and of a state park. It is a place

                                                                 Figure 2-1
                                         LEELANAU COUNTY LAND USE                   LAND COVER


                                         inland Staiace Water (8.20%)


                                         Wetland (5.7%)   ::i:..
                                                                                                 Open Land (15.40%)
                                 Barren Land (1.6%)



                             Urban Land (62%)











                                                                                                  Wooded Land (39.0%)
                               Agricultural Land (23.8%)




                          Source: Leelanau County 1990 aerial photography. Note: Data does not include islands.



          The Leelanau General Plan - Peninsular View                                             Preservation of Peninsula Character
                                                                                                                            Page 2-1










           of special scenic quality and opportunity for                 Familiar landscapes are important image
           pleasure in the out-of-doors.                             guideposts people use in finding their way in
                                                                     daily activities. Change in the landscape can
              Visual character is the image one retains              become a big issue because it affects a
           from looking at a landscape. This image is                person's daily life by changing surroundings
           made up of many visual parts. It is the                   that were once familiar into suddenly
           architecture of homes and businesses in an                unfamiliar settings.
           area. It is also the shape of hills, valleys, and
           shorelines. It is how much the forests close in              High dune and glacial ridges form the major
           on the roads or how the fields are open. It               land features of Leelanau County (see Map 2-
           includes the species of trees in the forests and          1). These ridges generally run northto south.
           the type of crops in the fields. Roads, too, are          There are small pocket valleys between the
           an important component: are they straight or              ridges, as well as broad slightly rolling plateaus
           curved, wide or narrow, and are there curbs on            in the center of the peninsula. Rolling plains
           the residential streets?                                  are farms along the shoreline in the area of
                                                                     Northport. High points on the ridges are
              The visual character of a community is                 landmarks because of the striking views they
           important. It is more than just what buildings            provide to the inland lakes, Lake Michigan or
           or landscapes look like. Visual character                 Grand Traverse Bay. For example, the view to
           sticks" in peoples minds. It is a very                   the north and west from the hill crest of Town
           important part of what attracts people to an              Line Road is a panoramic view of Lake
           area to live, invest, or vacation.                        Michigan and the Manitou Islands that serves


                               Map 2-1                                                   Map 2-2
                 LANDFORMS AND OPEN SPACE                                       LANDSCAPE DISTRICTS







                                                                                                          4
             LEGEND
                                                                                                               NORTHPORT
                                                    NORTHPORT
             Ridge L                                                                                    t,
             
             -*Jop.d V.2"
             &..Me Road

             Nigh Vlee@g fthels
             W.Pece                                                                                       11
                                           av,
             -Q. W.0-d @  0 , ,           
                                                                                        r
                                            7:                                                LELAND
                                                                                                           4@,
                                                                                                           lAe
                      ",6
                                                                                                        7M,
                                                                                                             iMON111SAY
                                                     S.Al

                                                                                                                   zt
                                                                                                    r
                                                                                         
                                                                                      441
                                                                                                          52qAe
                                                                                          _00qJ
                             2.

                                                                        AM7 OFr-W        T14
                                                                                      Soo
              P
                   '"N
                               72







        L

           Preservation of Peninsula Character                                  The Leelanau General Plan - Peninsular View
           Page 2-2









        as both a beautiful view and as an orientation               Bay is intermittently visible almost the
        landmark. Because the ridges are highly visible,             entire length of this area.
        they need to be considered as sensitive visual
        environments. Development can easily change                       The central peninsula farms. A broad
        them.                                                        sweep of crop fields and pastures stretch in
                                                                     two segments from the southeast part of
           Most of the peninsula is a checkerboard of                the county to the north central part of the
        woodlots, pastures or meadows, active crop                   peninsula. The south central peninsula
        fields, orchards and water. There are few                    farms are characterized by more traditional
        routes where forest borders the roads for more               farms, fewer orchards. Extensive sand and
        than a half mile, nor where open fields stretch              gravel extraction activities also exist in the
        for more than a mile without encountering                    southwest portion of this area.
        another woodlot. There is more wooded
        landscape than open field.                                        Ridge-top farms. These are farms and
                                                                     orchards along both sides of the south arm
           The visually similar areas in Leelanau                    of Lake Leelanau that are perched high on
        County are: (see Map 2-2).                                   the ridges, and command long views.

               West-Bay Shore Drive (M-22) from                           Southwest forest and open valleys. In
           Greilickville to Omena. This is a narrow                  the  southwest part of the county the hills
           band of waterfront houses on the east side                are  wooded and there are fewer farms and
           of the road and largely abandoned                         openings. There are a few valleys that have
           agricultural fields on the left that are being            been farmed, and          are now largely
           converted to large-lot residential use. There             meadows.       This   area extends from
           are occasional wooded areas and strip                     Bohemian Road (CR 669) to Empire north
           residential lots. The West Grand Traverse                 along Lake Michigan to beyond Leland.
































        Fruit trees in bloom.


        The Lealanau General Plan Peninsular View                                    Preservation of Peninsula Characier
                                                                                                            Page 2-3








                    Rolling dry dunes. In this area north of                     Lee Point to Stony Point. This area of
                Leland to about Johnson Road there are                      rolling farms, orchards and woods juts out
                open grassy fields on the hills and pockets                 into    Grand Traverse        Bay.     However,
                of cedar and aspen in the wetter hollows.                   because of the dense bay-side vegetation
                Between Manitou Trail (M-22) and Lake                       and high bluffs along much of the water's
                Michigan deciduous forest cover is fairly                   edge this area is more isolated from views
                complete.                                                   of the water.

                    Northport woods. In this area to the                    Water is an important feature of Leelanau
                south and west of Northport the deciduous               County, both because the Great Lakes shape
                forest is still largely intact, so that there are       the peninsula, and because of the many lakes,
                few open views.                                         streams, and wetlands within the peninsula.
                                                                        Places where roads are adjacent to the water
                    Northport flats. The area north of                  or cross rivers and streams, make nodes, or
                Northport is flat compared to the rest of               focus points. Big and Little Glen Lakes and
                the county. There are large open fields, and            Lake Leelanau are the largest lakes in the
                large conifer plantations. Patches of                   county. Numerous smaller lakes, usually
                deciduous forest remain near the water on               associated with wetlands, are scattered
                both  sides of the peninsula tip.                       throughout the peninsula.

                                                                            Villages, small towns and crossroads get
                                                                        their character from the style of architecture,
                                                                        the nature of businesses, and the layout of
                                                                        streets. All the towns and villages in Leelanau
                                                                        County are small. Each has a small grid street
                                                                        pattern, making the location of businesses and
                                                                        homes easy. Suttons Bay has alleys behind the
                                                                        houses of many streets, reducing conflicts
                                                                        between pedestrians and cars, and between
                                                                        cars on the streets and those backing out of
                4                                                       driveways.

                          71
                                                                           Buildings throughout are generally small
                                                                        scaled. Few buildings are of large mass or over
                                                                        three stories in height. Fruit processing
                                      4 A@
                           _4
                                                                        buildings are scattered throughout the county
                                                                                                  frequently seen
                                                                        and are the most                                large
                                                                        buildings.


                                                                        The major threat to the future quality of life on
                                                                        the peninsula is continuation of the current
                                                                                                               development
                                                                        land use pattern. The current
                                                                        pattern can most charitably be described as
           7.
                                                                        low density sprawl.


                                                                            Architectural styles are most often of five
                                                                        basic types. One is the agricultural, which
                                                                        includes     farmhouses,       barns and        other
           A tree-lined road.


           Preservation of Peninsula Character                                       The Leelanau General Plan - Peninsular View
           Page 2-4









        outbuildings, and pole barn-type sheds and                  zoning" practices. These changes seem to be
        small processing facilities. A second is an old             slow but are insidiously changing the rural
        resort type. These are generally painted one or             character of the peninsula in ways that have
        two-story clapboard Cap Cod, Victorian, salt                serious cumulative effects. It is, in the sage
        box, vertical or horizontal log, or mixed small             words of ancient eastern leaders, "the death of
        lakefront cottages. A third is the contemporary             a thousand        cuts." These changes are
        natural finish wood structure. Large and small              documented in Working Papers #5 and #10.
        lakefront homes as well as commercial                       Some of the negative effects of the current
        buildings are now being built in this angular               land use pattern are listed below:
        style. A fourth is the suburban ranch home
        that is built on lakefronts, subdivisions, and in               renewable resource lands (such as prime
        strip residential areas along county and state                  farm and forest lands) are being destroyed
        roads. These are often brick, wood or vinyl                     probably forever.
        clapboard siding or a combination. The fifth is
        the    eclectic      contemporary,         or the               the agricultural economy of the peninsula is
        contemporary from some other region. These                      being seriously diminished.
        are structures such as concrete-block and
        painted metal grocery stores and mansard-                       a future public service quandary is being
        roofed banks.                                                   created.


                                                                        open space and scenic vistas are being
        MAJOR THREATS                                                   destroyed.

           The rural character of the Leelanau                                           Figure 2-2
        Peninsula is treasured by its residents and                  DIAGRAM OF THE URBAN SPRAWL CYCLE
        visitors. The rural character is a driving force
        of its tourist economy. Yet, if current trends
        continue, the peninsula is at great risk of losing
        its rural character over the next one-two
        decades.                                                                           URBAN
                                                                                          SPRAWL


        These changes are occurring largely because                      INCREASED                       INCREASED
        local plans and zoning regulations not only                      LAND SALES                      FARM LAND
        permit them, but encourage them through so-                                                        VALUES
        called "large lot zoning" practices.


                                                                       DECREASED                                 !R
            The major threat to the future quality of life             PROFITABILITY                       ASSESSED
        on the peninsula is continuation of the current                OF FARMING                          VALUE
        land use pattern. The current development
        pattern can most charitably be described as                                      INCREASED
        low density sprawl. It is characterized by the                                   PROPERTY.-W/
        fragmentation of large parcels into lots of                                        TAXES
        between 1 and 20 acres in size with frontage
        on a county road primarily for use as the site
        for a single dwelling. These changes are                        Souxe. Dunford, R-W. 1979, Famdand Tax R&W Aftenwrivew
        occurring largely because local plans and                       Use Value Asseawnent vs. Cimuit-Breaker Rabat*%, Cim 617.
        zoning regulations not only permit them, but                    College of Agn=*uto Rasmmh Center, WashmWon State
        encourage them through so-called "large lot                     University, Pu&rnn, WA (Sept.)


        The Leelanau General Plan - Peninsular View                                      Preservation of Peninsula Character
                                                                                                                 Page 2-5








              In short, these changes are cumulatively               to other employment centers outside the
          undermining the very unique character that                 county, contribute to the market pressure.
          makes the peninsula so attractive to tourists,             Unfortunately, each new dwelling on prime
          and hence undermining the tourist economy.                 orchard or forest land not only permanently
                                                                     converts that land out of renewable resource
                                                                     use, but also creates a new public service
          Th a    current development pattern is                     burden and contributes to rising taxes on the
          characterized by the fragmentation of large                farmer-making it more difficult for the farmer
          parcels into lots of between I and 20 acres in             to stay in business (see Figure 2-2).
          size wfth frontage on a county road primarily
          for use as the site for a single dwelling. These             From 1940 to        1990 the population in
          changes are occurring largely because local                Leelanau County       increased 95.9%. The
          plans and zoning regulations not only permit               increases, however, have been much greater in
          them, but encourage them through so-called                 the townships than in the villages. For
          "large lot zoning" practices.                              example, the population of the Village of
                                                                     Northport has increased by only 2%, while
                                                                     Elmwood Township's population has increased
              The pressure to fragment rural lands and               by 335% (See Figure 2-3).
          convert them from agricultural or forested
          cover to residential use stem largely from                    New dwelling unit activity has skyrocketed
          regional population and employment growth.                 in the last decade with over 2500 new
          The beautiful and varied landscape of the                  dwellings constructed between 1980 and
          peninsula and the reasonable commuting time                1992. Almost all of this development activity


                                                           Figure 2-3
                                                     POPULATION TREND


                                         Leelanau County Population: 1860 - 2020




                     30,000


                     25,000


                     20,000


                     15,000


                     10,000


                        5,000


                            0
                                                                               0     Ln
                                        C14   CV)  IV    Ln   co     P.  W
                                        M          C"    M           M   M
                                                                                          cly   C14  C14




                   Somme Decanniel Census 1980- 1990 P@qectionx Mich)gan Dep&-t of Menegarnent and Budget & Manning and Zoning Cwt", ki4L



          Preservadon of Peninsula Character                                    The Leelanau General Plan - Peninsular View
          Page 2-6









         has been on large lots scattered throughout                   is estimated to remain very high at nearly
         the county. Most of it has not been in                        3,000 more units by 2000. An additional 2400
         subdivisions with traditionally sized lots.                   are projected by 2010 and 2750 more by
         During the past decade over 1,500 acres has                   2020. The long term impacts on the character
         been rezoned to residential (largely from                     of the peninsula, on public service costs and
         agricultural districts).                                      on the economic viability of resource based
                                                                       lands will vary dramatically based on where
                                                                       these new dwelling units are constructed. For
         Each new dwelling on prime orchard or forest                  example, if all the homes were on lots in
         land not only removes that land from                          twenty new 150 unit subdivisions within or
         renewable resource use, but also creates a                    contiguous to existing villages, the community
         new public service burden and contributes to                  character impacts would be far, far less than if
         dsing taxes on the farmer - making it more                    they were spread on large lots across the
         difficult for the farmer to stay in business.                 peninsula. In the former case 3,000 new
                                                                       dwellings on quarter acre lots would take up
                                                                       only 750 acres of land, whereas if those new
                                                                       dwellings are built at current average minimum
            Between 1980 and 1992 the percentage                       lot sizes and spread across the county, about
         that agricultural lands represented of total                  3,185 acres of land will be needed to
         state equalized valuation fell from 17% to 9%                 accommodate them. This is nearly 5 square
         while residentially classed parcels rose from                 miles of land. If, as is more likely given current
         70% to 81 %. Agricultural land value during                   trends, these residences are on lots larger than
         that same period rose from $37.4 million to                   current average minimums, then as many as
         $58.3 million while residential land value                    30,000 acres (47 square miles) could be
         skyrocketed from $158.1 million to $508.8                     consumed just to provide lots for 3,000 new
         million.                                                      dwellings.

            Employment, on the other hand, while
         slowly increasing, has been concentrated in                   3,000 new dwellings on quarter acre lots
         jobs that are generally low paying.                           would take up only 750 acres of land, whereas
                                                                       ff those new dwellings are built at current
                                                                       average minimum lot sizes and spread across
         New dwelling unit activity has skyrocketed in                 the county, about 3,185 acres of land will be
         the last decade with over 2500 new dwellings                  needed to accommodate them. This is nearly 5
         constructed between 1980 and 1992. Almost                     square miles of land
         a# of this development activity has been on
         large lots scattered throughout the county.
                                                                           In contrast, employment projections based
                                                                       on current trends suggest that only 886 new
            Population projections based on trends over                jobs will be created by the year 2000. Only 77
         the past two decades estimate an additional                   new acres of commercial or industrial land will
         4,961 persons in the county by the year 2000.                 be needed across the entire peninsula to
         The 1990 population is 16,527. This would be                  accommodate these new employees.
         a 30% population increase. Thereafter rates of                Obviously, most new residents are projected to
         increase are projected to slightly decline but                either commute out of the county, or not work\
         the base population will continue to grow to                  (largely retirees). That is, of course, the current
         about 26,250 persons by the year 2010. See                    situation and it is not expected to change
         Figure 2-3.                                                   given the relative remoteness of the county to
                                                                       urban areas and the fact it is a destination
            The number of projected new housing units                  location rather than a location along a route


         The Leelanau General Plan - Peninsular View                                       Preservation of Peninsula CharacFe-r
                                                                                                                    Page 2-7









           between two urban centers.                               A STRATEGY TO
                                                                    PROTECT VISUAL CHARACTER


              The implications of the       continuation of             The proactive participation of the county in
           current trends on the future    character of the         development of the Grand Traverse Bay Region
           peninsula are disastrous. Unless coordinated             Development Guidebook illustrates the ways in
           and integrated land use planning occurs at               which new development could occur in order
           both the county and local levels of government           to protect the visual character of the
           very soon, the landscape features of the                 peninsula.     Recommendations from the
           peninsula that make it so attractive to current          Guidebook which are incorporated into this
           residents and tourists will be lost or badly             General Plan follow.
           damaged. Once lost, it will be very difficult, if
           not impossible to restore.                                   The protection of scenic values can be
                                                                    accomplished through a variety of choices
                                                                    including (see also Figure 2-4):
           Only 77 new acres of commercial or industrial
           land will be needed across the entire peninsula          0   building most new dwellings in villages and
           to accommodate these new employees.                          subdivisions rather than on large rural lots.

                                                                    0   setting aside open land, or placing
                                                                        development where it has the minimum
           VISUAL CHARACTER ETHIC                                       visual impact.

              It is most desirable for     the rural visual         0   clustering residential, commercial, and
           character of the landscape      to remain after              industrial development to retain open
           growth accommodates increases in population                  space.
           and development. County citizens have
           indicated they do not want the landscape to              0   using    plantings    with     predominantly
           take on a suburban or urban ornamental                       naturally occurring species on areas visible
           character, or the natural and rural character                from roads.
           will be lost. The bays, lakes, rivers, streams,
           ridges, and rolling terrain along with woods             0   retaining naturally occurring vegetation to
           and farms that drive the economy of the                      the maximum extent possible.
           peninsula and contribute to the sense of
           identity of its citizens must be protected.              *   in building, sign and other construction,
           Almost everyone feels a right to see, enjoy,                 lean toward using materials such as wood,
           and seek to help protect these resources.                    stone, or brick rather than metal, plastic, or
           Protection of the unique rural character of the              concrete. Muted, rather than bright colors
           peninsula needs to become a fundamental part                 seem to suit the north country lakes,
           of all future planning and development                       woods, and traditional farms and villages.
           decisions.
                                                                        Pleasing, rather than chaotic views along
                                                                    roads can be accomplished by:
           The implications of the continuation of current
           trends on the future character of the peninsula          0 reducing the size and number of signs.
           are disastrous.
                                                                    ï¿½ burying utilities or routing them away from
                                                                        the street.

                                                                    ï¿½ enhancing parking lots with landscaping.


           Preservation of Peninsula Character                                  The Leelanau General Plan - Peninsular View
           Page 2-8










     Tb
     r-
     Cb
     (b

                               BUILDINGS REFLECT
           LANDSCAPING            Common architectural              REAR SERVICE DRIVES
     (b    TO SCREEN              period or style                   & PARKING AT SIDE OR
           PARKING LOTS        0  Similar mass & shape              REAR OF BUILDINGS
                               0  Similar lot size &
                                  street layout





                    702
                                                    1@ nE
                                                    QUAI





                                                                                     2


                     SIGNS USE WOOD,
                     STONE OR BRICK
                     INSTEAD OF METAL,
                     PLASTIC OR CONCRETE,
                                                                     SERVICE ACCESS FOR
                     AND LOW-INTENSITY
                                                                     SEVERAL BUSINESSES
                     LIGHTING                   BURY
                                                UTILITIES





                                            Figure 2-4
                                   PROTECT VISUAL CHARACTER








            ï¿½  using service drives and alleys to limit curb                 Future quality of life on the peninsula will
               cuts.                                                     depend to a great extent on the degree to
                                                                         which the particular rural character of the
            ï¿½  placing parking behind or beside buildings,               peninsula has been protected. Much of the
               but not in the front yard.                                local economy will depend on it. The sense of
                                                                         satisfaction      residents     have    with      their
               The character of villages should be kept                  community will depend on it. Protective
            intact. Key aspects of village character include:            measures are not incompatible with additional
                                                                         growth because the issue is not whether or
            0  architectural period and style                            not to grow, it is where and how. It is most
                                                                         important to focus efforts on encouraging new
            0  mass and shape                                            development in and adjacent to existing
                                                                         villages,    protection      of   existing      village
            0  material and color                                        character, while protecting agricultural lands
                                                                         and other open spaces. Protection of the visual
            0  lot size and street   layout.                             character of these areas will provide both long
                                                                         term economic benefits and quality of life
               At night, the stars should* be visible in the             benefits to both residents and visitors now and
            sky - not obstructed by diffuse light from the               for many    years to come.
            built-up environment.







                     6 1



                                                                                   Mt al
                                                                                    "Ad



                           -2:


                           e







                 .wL-     m:Y@1775
                                                                                       7@ 4i
                     AL.
           r                                                           P@


                                      -Oft


                                    27





            Preservation of Peninsula Character                                       The Leelanau General Plan - Peninsular View
            Page 2-10









                                                          Chapter 3
                                              WORKING WITH NATURE


        POLICY GUIDELINE:                                          water quality, and clarity). Wildlife is abundant.
        WORKING WITH NATURE                                        Dunes have world class ranking. Significant
                                                                   land areas are in federal or state ownership to
            Extensive and diverse sensitive natural                protect natural characteristics. See Maps 3-1
        features found throughout provide the                      and 3-2.
        foundation for the present and the future
        quality of life on the peninsula. They should be
        protected where pristine, restored where                   ENVIRONMENTAL THREATS
        damaged, and have access and use managed
        for long term sustainability.                                  The natural   environment on the Leelanau
                                                                   Peninsula is at   risk. While air quality is still
                                                                   good, ozone levels are rising due to
        ENVIRONMENTAL FEATURES                                     contaminants       brought from elsewhere
                                                                   (presumably       southern      Lake     Michigan
            The natural environment of the Leelanau                communities). Groundwater is extremely
        Peninsula is of exceedingly high quality. All but          sensitive to contamination due to very sandy
        two short stretches of streams fail to provide             soils and 35 sites are now officially on the Act
        the oxygen and low temperatures for trout.                 307 list of contaminated sites in Leelanau
        Most of the lakes are either oligitrophic or               County. Small incremental wetland fills
        mesotrophic (a measure indicative of high                  continue to reduce wetland areas. Land

                             Map 3-1                                                    Map 3-2
                         INLAND LAKES                                             WETLAND AREAS





                                                                                         0       5MI


                                  0       5MI




                                                                                   N


                          N
























                                                                                      WETLAND
                                                                                      AREAS





        The Leelanau General Plan - Peninsular View                                                 Working with Nature
                                                                                                              Page 3-1








                                                                  vigilance is sometimes misplaced (i.e., focused
                                                                  0
                                                                   n a few highly visible projects while largely
                                                                  ignoring the "death of a thousand cuts"). The
                                                                  Leelanau Conservancy has quickly established
                                                                  itself as an important positive force in
                                                                  protecting lands with sensitive environmental
                                                   -4-            resources. This is done by outright land
                                                                  purchase, conservation easements and gifts.
                                                                  Yet new resort developments in sensitive
                                                                  enviro
                                                                        nmental areas continue to be proposed
                                                                  and to dominate local land use issues.

                                  77

                                                                  NATURAL RESOURCES
               nil.
                                                                     The natural resources of the Leelanau
                                                                  Peninsula are vital to the economic health and
                                                                  the sense of well being of area citizens. These
                                                                  natural resources are interrelated biological
                                                                  systems. They require knowledgeable and
                                                                  careful stewardship for protection measures to
                                                                  be effective.


         Forest cover in Leelanau County.
                                                                  STEWARDSHIP ETHIC

         fragmentation is cutting into farm and forest               The natural resources of the peninsula
         lands, and subsequent residential development            should be treated as if they are a trust for use
         is reducing animal habitat and hence biological          by all generations. Long term quality of life, a
         diversity. About 3,680 acres of land were                sustainable economy, and generational equity
         converted to urban (mostly residential use on            all demand this. A stewardship ethic views
         large lots) between 1977 and 1990. Wildlife              renewable resources as resources to be
         corridors and linked open spaces are being lost          managed for long term productivity based on
         (except on federal and state land). The lack of          their potential value and contribution to local
         mandatory septic system maintenance and                  quality of life. In some cases they may be
         uniform stormwater management regulations                managed for single use (such as for an
         pose threats to water quality in lakes and               orchard), in others for multiple use (such as a
         streams from nutrients, sedimentation, and               forest for wildlife habitat, hunting, and timber
         other pollutants.                                        production).     In    contrast,     however,
                                                                  contemporary land use practices are too often
             Local plans and zoning regulations vary              focused more on resource exploitation for
         greatly in the degree to which environmental             short   term     economic      gain to the
         concerns are addressed. Local land use                   owner/operator without consideration of long
         decisions often do not fully apply the                   term impacts on that or adjoining land or water
         environmental protection standards already               resources. As a result, land is scarred, water
         included in existing ordinances.                         may be contaminated, and quality of life is
                                                                  reduced for generations- usually by the time
            On the plus side, however, citizen interest           the damage is recognized, the exploiter is long
         in environmental protection is high (see                 gone.
         Working Paper #2, page 34) as is citizen
         vigilance, although it could be argued that


         Working with Nature                                                The Leelanau General Plan - Peninsular View
         Page 3-2









           Thus, the primary environmental goal of the              It is important to guide new development in
        Leelanau General Plan is the protection of              a way which works with nature rather than
        unique and sensitive lands and the water                against nature. A healthy economy depends on
        resources from inappropriate and poorly                 a healthy environment. Where there are
        designed development. This includes unique              legitimate conflicts between proposed new
        and prime agricultural lands as well as                 development and an important sensitive natural
        sensitive environments like dunes, wetlands,            resource,    and    reasonable    and     prudent
        and wildlife habitat.                                   alternatives exist, then the new development
                                                                should yield to the sensitive environmental
                                                                feature and be built elsewhere. Where long
                                                                term sustainable economic or public safety and
        The primary environmental goal of the                   welfare benefits outweigh small environmental
        Leelanau General Plan is the protection of              impact, then the new development should be
        unique and sensitive lands and the water                allowed to proceed with appropriate mitigation
        resources from inappropriate and poorly                 measures. In all cases, planning and
        designed development.                                   development regulation should be oriented to
                                                                preventing pollution, impairment, or habitat
                                                                destruction.









                                                          07
                                                                                       A-








                                                                                          -7


                              @7


                                               .- LL_


                                                                                                         Z










                             34@
                                             S
        ;Z.V
                                           ne
        9b@o.'


                         %                    W'V     -7-



                                                               4
                                                                                                         %





        The Lake Michigan shore.


        The Leelanau General Plan Peninsular View                                               Working with Nature
                                                                                                          Page 3-3








           ENVIRONMENTAL                                                be encouraged whenever possible.
           PROTECTION STRATEGY
                                                                    0   Compact development. New residential
              The basic strategy for environmental                      development in the county should be
           protection on the Leelanau Peninsula as                      encouraged in villages and in clusters on
           advocated by this General Plan follows (see                  non-prime resource lands.
           Figure 3-1). More specific policies and action
           statements are found in Part Two.                        0   Keyhole development. Control of private
                                                                        keyhole development around inland lakes
           ï¿½  Identify and avoid sensitive environments in              has become necessary. New lakefront
              advance. New development could then                       public access sites should be carefully sited
              avoid wetlands, dunes, floodplains, and                   to minimize environmental degradation and
              endangered or threatened plant and animal                 managed to avoid lake overcrowding and
              habitat. Site plans need to be developed                  nuisance impacts on abutting properties.
              based on state, county, and local maps of
              sensitive resources, as well as on site               0   Protection of renewable resources. The
              specific reconnaissance.                                  protection of prime agricultural and forest
                                                                        lands and the promotion of environmentally
           ï¿½  Protect water quality of surface water and                sound sustainable agricultural and forest
              groundwater. Regulations to require regular               management practices can be achieved by
              inspection and maintenance of septic tanks                coordinated county and    local policies with
              are needed. New regulations to manage                     the support of the farm community.
              stormwater impacts on waterbodies should
              be enacted and enforced based on the
              Grand    Traverse     County stormwater
              regulations.

              Minimize -land fragmentation of large
              parcels. Uniform local zoning and land
              division regulations should be enacted
              which prevent fragmentation of prime farm,
              forest, and important open space lands. A
              transfer of development rights program
              (TDR) should be created to permit
              landowners to capture the value of
              development rights of open space lands in
              lieu of dividing the land for sale as
              residential lots (see Chapter 6 for more
              information on this technique).

              Linking open spaces. Wildlife corridors,
              habitat protection, and linkages between
              open    spaces should       be a primary
              consideration in the development of new
              local plans and peninsula-wide open space
              plans. Efforts should be made to acquire
              fee simple interests or conservation
              easements across such lands where they
              are not already in public ownership. Other
              efforts such as mapping biodiversity should                       ;;RROW"@, 1W

           Working with Nature                                                 The Leelanau General Plan - Peninsular View
           Page 3-4












      th


                                               NEW DEVELOPMENT:
                                               0 Compact                PROTECT RENEWABLE
                                                                        RESOURCES-
                                 LINK          * Close in to village
                                                                        FARM & FOREST LAND
                                 OPEN SPACES
      ib@                                                 m
                  EXISTING VILLAGE





                                                                                                z
                                                                                                <



                                                                                                z
                                                                  --'TRANSFER 0                   n
                                                                    DEVELOPMEN                  z C
                                                                   RIGHTS
                                                                                            .. . ... . .
                                          Lake                                              k   Cn




                                                                                                0
                                    Wetland




                                                                             PREVENT LAND
                                                                             FRAGMENTATION
                                                             BUFFER TO       OF LARGE PARCELS
                  SEPTIC SYSTEM                KEYH          PROTECT
                                               DEVELOPMENT
                  MAINTENANCE
                                                                     A


































                                                             WATER QUALITY
                                               RESTRICTED









                                                              Chapter 4
                                                    BALANCED GROWTH



          POLICY GUIDELINE:                                             continue and will be concentrated in
          BALANCED GROWTH                                               agricultural and high technology enterprises.

             New residential, commercial, and industrial                    There is no real question as to whether
          development on the peninsula is encouraged                    there will be new growth on the peninsula, it is
          provided it is: 1) in locations with public                   simply a matter of where, when, how much,
          services adequate to meet its needs, 2)                       and what type. The principal challenge is to
          environmentafly friendly, 3) consistent with the              devise an integrated and coordinated growth
          character of development in the area, 4)                      strategy which enjoys broad public support and
          consistent with local plans and regulations,                  that utilizes the best capabilities of county and
          and 5) compatible with the guidelines of this                 local governments to guide growth into those
          General Plan. In the implementation of this                   locations best able to accommodate it, and/or
          policy guideline, both the county and local                   most in need of it for the foreseeable future.
          governments would seek to ensure over time,
          that afl the health, safety, and general welfare
          needs of its citizens that can be reasonably                  While the amount of new development will be
          met are accommodated with a variety of land                   a function of demand, which is not easily
          uses in the pattern proposed and in a manner                  regulated, the location of new development, its
          which does not unnecessarily compromise                       density, and the adequacy of public services in
          options for future generations.                               the are principally a function of governmental
                                                                        decisions.


          There is no real question as to whether there
          will be new growth on the peninsula, it is
          simply a matter of where, when, how much,                         These policies should focus highest
          and what type.                                                attention on both residential and agricultural
                                                                        land uses, due to their interrelatedness if
                                                                        current trends should continue. The greatest
                                                                        land use changes projected to occur involve
          CONTEXT FOR BALANCED GROWTH                                   conversion of agricultural and open space
                                                                        lands to residential use. Current trends must
              There is projected to be a continued                      stop soon, or sprawl will consume critical
          demand for new dwellings on the Leelanau                      areas of the agricultural economic base of the
          Peninsula. These new dwellings will serve                     county and the open space that it provides.
          some existing residents, but largely will
          accommodate         seasonal      residents,      new             Commercial        development should            be
          residents who will be working, or retirees. The               directed into existing villages and resorts and
          county will grow as both a bedroom and                        not be permitted to expand beyond planned
          tourist community. New businesses will                        areas. While the amount of new development
          continue to be established and some existing                  will be a function of demand, which is not
          businesses will enlarge. Many new businesses                  easily regulated, the location of new
          will focus on the needs of tourists, but                      development, its density, and the adequacy of
          increasingly, as the indigenous year round                    public services in the area are principally a
          population increases, they will focus on the                  function      of governmental decisions.
          growing needs of existing residents. Limited                  Coordinating consistent land use decisions is
          opportunities for industrial development will                 necessary to accomplish balanced growth. It


          The Leelanau General Plan - Peninsular View                                                         Balanced Grow3i
                                                                                                                      Page 4-1








            also requires local plans and regulations that                    commuter population (people who live in the
            are built on a common vision and which rely on                    county but commute to work elsewhere). Two
            common policies for their implementation.                         (if not all three) of these job categories exist
                                                                              because      of the       natural    resources and
                                                                              environmental quality of the peninsula. Without
            This General Plan accepts the principle that                      it, the jobs would be lost. Yet the job base on
            environmental protection and economic                             the peninsula is not sufficient in size to provide
            development are not incompatible objectives.                      many new opportunities for young persons
                                                                              raised in the county to find work after
                                                                              graduation. Neither are average pay scales
                                                                              sufficient to support a family. Affordable
            BALANCED GROWTH ETHIC                                             housing opportunities are becoming fewer and
                                                                              fewer. As a result, the disparity between the
                This General Plan accepts the principle that                  higher and the lower income citizens is
            environmental        protection      and      economic            growing (see Working Papers # 7 and 11).
            development are not incompatible objectives.
            Jobs are essential for the income they                                Balanced growth will require housing not
            generate to support families. Jobs in Leelanau                    only for the wealthy seasonal residents,
            County are largely related to agriculture,                        retirees, or two income commuter families, but
            tourism, or to serving the needs of the growing                   also for young families, the elderly, and other









                                                                       brv
















                                                                                                                   L @z@



                                                       7-
                                                                                                                                       ra
                                         V,
                                          17


                                                       a4-

                                                                                                     W-
                                                                                                                                       %
                                                                                                       7    -9
                                                                                                       -7


            Aerial view of Sugar Loaf Resort tforeground), Little Traverse Lake (right), and Lime Lake (left).



            Balanced Growth                                                                The Leelanau General Plan   Peninsular View
            Page 4-2



             0                                                    0                                                   0
                            PROTECT RENEWABLE
                            RESOURCELANDS                         ENCOURAGE COMPACT
        tb
        (b                                                        DEVELOPMENT WITH        ENCOURAGE           INDUSTRIAL PARK
                                                                  COMMON OPEN SPACE                           NEW JOBS
                                                                                          AFFORDABLE
                                                                                          HOUSING
                                                           POO 0:Q0                                 0
        Cb                                                     0  . @O .@ - 01 .1,@             000                   Mason
                                                                  0 0,2Q0900 QOQago**
                                                                    OQ @ Q 0  V
                                                                         ;@Qw'QQ',?q go



        14







                                                                                                              LINKJ
                                                                                                              &HOU ING,')@@:
             PUBLIC SERVICE                                                                                   Y-v v
             BOUNDARY









                                              ENCOURAGE NEW
                                              BUSINESS ACTIVITY
                                              WITHIN EXISTING VILLAGE
                                              THAT REFLECTS                                                 PHASED NEW
                                              VILLAGE CHARACTER                                             GROWTH WITHIN
                                                                                                            PUBLIC SERVICE
                                                                                                            BOUNDARY
                                           L- DISCOURAGE                                                                    0
                                              STRIP DEVELOPMENT
                                              AT EDGE OF VILLAGE



                                                                                                                         00
        to

                                                                  Figure 4-1
                                                   BALANCED GROWTH STRATEGY








          low income residents. It will require new                       In short, sustainable development means
          businesses to support the needs of these new                protecting the goose that lays the golden egg.
          families. It will require new tourist jobs and              On the Leelanau Peninsula, that means
          probably some new light industrial jobs as                  protecting the natural environment and the
          well.                                                       renewable natural resources to a greater
                                                                      degree than would likely be the case
            Where these new homes, these new                          elsewhere. This is because most of what is
          businesses and industries are constructed will              good about the peninsula comes from the
          affect the future quality of life on the                    natural environment, and most of what
          peninsula. If the present pattern of sprawl                 sustains families on the peninsula also comes
          continues for 10-20 more years, the rural                   from it.
          character of the peninsula will be irretrievably
          damaged as will most of the open space not in
          public ownership. This will dramatically reduce,            BALANCED GROWTH STRATEGY
          if not eliminate future tourism growth. It will
          also create an enormous public service burden                   The basic strategy for balanced growth on
          that will not be cost-effective to meet because             the Leelanau Peninsula as advocated by this
          of the low density, spread-out pattern of                   General Plan follows. See Figure 4-1. More
          development. Incremental sprawl of residences               specific policies and action statements are
          across the countryside will drive out                       found in Part Two.
          agriculture and further narrow (rather than
          broaden) the tax base.                                      0   Significantly curtail sprawl and encourage
                                                                          compact development. The future land use
                                                                          pattern on the peninsula will encourage
          ft will also create an enormous public service                  new residential development in existing and
          burden that will not be cost-effective to meet                  adjoining villages (and perhaps new
          because of the low density, spread-out pa ttem,                 villages) and on non-prime soils or sensitive
          of development.                                                 lands. Strip development will be strongly
                                                                          discouraged and all new commercial
                                                                          development will be in a village, resort or
          The solution is balanced growth that deeply                     already established commercial area (such
          respects the environment and the quality                        as Greilickville).
          natural resources on the peninsula. The
          balance must be founded on the principle of
          sustainability.

          Sustainable use occurs when the ecosystem,
          organism, or renewable resource is maintained                                              SOLD
          indefinitely at a rate within its capacity for
          renewal. Sustainable agriculture respects the
          land and water and involves management                                                               '73:V
          practices that do not diminish the potential of                                                TA
          future operators to gainfully produce crops.
          Sustainable development meets the needs of
          the present without compromising the ability
                                                                                                                             cc
          of future generations to meet their own needs.                                                                    Z
          A sustainable economy is one which meets the
          needs of the present without so exploiting the
          environment and natural resources that future
          generations suffer.
                                                                      Real estate transactions are plentiful.

          Balanced Growth                                                         The Leelanau General Plan --Peninsular Vie;-v
          Page 4-4









            The existing economic base will be
            protected and        enhanced.       Renewable
            resource lands will be protected for long
            term economically beneficial use. Activities
            supporting the tourist industry will       "  be
            protected and enhanced but will not be
            expanded into new areas without careful
            planning.     Business     activity    providing
            services to the year round population will
            be encouraged to concentrate in existing
            villages and strongly discouraged from
            moving to the edge of town.                                                low                U-
        0 New jobs. New year round employment in
                                                                                                             Zi         1k.
            services and light industry will be
            encouraged in several carefully planned
                                                                                                                        Q
            industrial parks.


        0   New development: where, when, how                      A new home in the woods.
            much, what type, and at what density.
            Most new development will be residential
            but local regulations need to be changed to                Public service boundaries. New public
            improve     opportunities     for     affordable           services should be provided on a planned
            housing, especially in existing villages. New              basis within boundaries of village and rural
            development should occur when, and only                    services districts. These districts need to be
            in locations which have or are guaranteed                  designed to economically and efficiently
            adequate public services to support the                    meet the needs of land uses within them.
            public service needs of new development.                   Simultaneously, high intensity development
            The density of new development will                        should not be permitted outside established
            respect the character of the surrounding                   public service boundaries.
            area, the capacities of necessary public
            services and not needlessly squander land                  Jobs/housing/transportation balance. As
            resources. New development will occur in                   new development occurs an effort should
            response to market demand and not                          be made to coordinate the provision of jobs
            speculatively, or ahead of necessary public                and     transportation          so    that     a
            facilities. In particular, new development                 jobs/housing/transportation       balance      is
            will   not    result    in   the     premature             achieved      that    results    in    reduced
            disinvestment in agriculture.                              transportation demands and a greater
                                                                       chance for cost effective transportation
        0   Phased growth. New public facilities will be               services, including transit services.
            constructed to guide future growth based
            on annually updated capital improvements                   Protect agricultural operations. Agricultural
            programs (CIP) prepared by each local                      operations need to be protected by local
            government and the county. All CIP's will                  zoning measures that classify them as the
            be coordinated and compatible with the                     principal and preferred use of prime orchard
            General Plan.                                              or other agricultural soils. Incompatible
                                                                       uses of adjacent land will be discouraged.
                                                                       Other local ordinances and programs should
                                                                       also be coordinated to protect sustainable
                                                                       agricultural operations.


        The Leelanau General Plan - Peninsular View                                                     Balanced Growth
                                                                                                               Page 4-5








               Protect sand and gravel resources. Lands                    lands without having to fragment or
               with large amounts of marketable sand and                   convert those lands for development
               gravel deposits should be identified and                    purposes.     In   particular, transfer and
               protected from conversion to other uses, or                 purchase of development rights will be
               from being surrounded by residences to the                  explored (see next chapter).
               degree that future extraction would be
               precluded.     Existing    sites    of    former        0   Educational opportunities. An effort should
               extraction activities should be reclaimed.                  be made to improve opportunities for
                                                                           continuing education and government
               Address      equity    concerns      of     large           officials will support the initiatives of public
               landowners. The value of prime agricultural,                schools to produce graduates with job
               woodland, and gravel lands for residential                  ready skills.
               development often exceeds that of the
               resource value of these lands. A major                  0   Health and human services. An effort
               effort will be made to develop a peninsula-                 should be made to improve health services
               wide program to permit large landowners to                  and access to them.
               capture the development value         of those









                         27@-,r
                                   -0


                                                              @F
                          -4-,






                        ..............





























                                                                                                                             Z









           Balanced Growth                                                          The Leelanau General Plan - Peninsular
           Page 4-6










                                                       Chapter 5
                               GROWTH GUIDELINES AND DECISION MAPS



        POLICY GUIDELINE:
        MANAGED GROWTH                                          local capital improvement programs that are
                                                                coordinated at all governmental levels on the
           Local comprehensive plans and local                  peninsula.
        development regulations (including for
        example, zoning and subdivision regulations)
        should be updated and thereafter maintained,            GROWTH MANAGEMENT TOOLS
        to include goals, objectives, policies and
        strategies for managing future growth                       The preface presented the principal goal of
        compatible with the Leelanau General Plan.              the Leelanau General Plan. Chapters 1 - 4
        Local plans should include more specific land           presented principal policy guidelines and
        use and density proposals at the parcel-specific        explanatory text in support of this goal. This
        level. Local regulations should focus on design         chapter explains a variety of existing and new
        and other issues of local significance. Public          tools that could be employed by the county
        facilities should all be constructed according to       and/or local governments in       the county to


















                              71




               74.
            lit.


                                                                     .."Now
                                                             011P77
                                ""Net,









        An aerial view of Sugar Loaf Resort.



        The Leelanau General Plan - Peninsular View                              Growth Guidelines and Decision Maps
                                                                                                          Page 5-1








            increase    significantly     the    chances      for        COMMUNITY TYPES
            successful implementation of the Leelanau
            General Plan. Part Two of the plan presents                     Identification of community types enables
            specific policies and action statements to give              citizens and officials to categorize areas of
            even clearer direction on steps that can be                  planned high, medium, and low density
            taken to implement this plan. Part Three                     development as well as to identify those areas
            focusses     on    the    institutional    structure         most likely to need improved public services in
            necessary for successful implementation.                     the   future    and/or     around    which      new
                                                                         development could be clustered. The density
               Following is a description of the key growth              classes referred to here are "average densities'
            management tools and techniques proposed to                  for development, a term not to be confused
            be used. Many relate to elements included in                 with 'minimum lot size." Average density
            the decision maps included in the last section               refers to the density that results by dividing a
            of this chapter. Some of these tools can be                  total number of future dwellings by the total
            used under existing statutes, others will                    acreage of a large land area. The number of
            require new enabling legislation. Some can be                dwellings on each parcel within the area in
            implemented by individual actions of the                     question may be a different size than the
            county or local governments while others                     "average." See Figure 5-1. In contrast, zoning
            require coordinated actions by multiple units of             ordinances typically establish minimum lot
            government.




                                            @, PA
                                                                                                                    -4




                                                                            IL
                                        IK- @-4-                                                              '.0-


                                                                                                                   Ila,











                                                                                                                      N
            WOL                                                                                           Ll



                                                         MNO




            Downtown Leland, looking south.

            Growth Guidelines and Decision Maps                                      The Leelanau General Plan - PenTn-sular View
            Page 5-2








         below which no smaller parcel may be used.                      Urban Center. The economic core of a region,
         The average density of an area is a better                      characterized by a high concentration of
         measure to use in the GeneralPlan because                       activity that may be but is probably not
         many parcels of varying dimensions are already                  coterminous with municipal boundaries. The
         built upon and new dwellings could be                           urban center typically provides employment
         clustered on a potion of a property to protect                  opportunities for a large number of people
         open space. Under clustering, the average                       within the region. It also provides a significant
         density remains low while the density of the                    portion of the region's economic and tax base.
         area with homes may by much higher. It is                       Urban centers are characterized by an average
         rather like the census-derived figure of 0.07                   density of one unit per 10,000 square feet in
         persons/acre in all of Leelanau County. This is                 platted areas, to one unit per one-half (Y2) acre
         an average density figure. However, within                      in unplatted areas not serviced by a municipal
         Suttons Bay or Northport, the average density                   sanitary sewer system.
         is much higher.
                                                                         Rural Center. A local activity hub consisting of
             The following community types have been                     residential neighborhoods, a surrounding rural
         identified and mapped in Leelanau County (See                   area, and a core of small businesses. Modest
         Map 5-1):




                                                              Figure 5-1
                                                AVERAGE DENSITY IS THE SAME



                                                                               v@ 80 - 1/4 acre lots in 20 acre SLX)*vWch


                                                 AO acres

                                                                                                    31 urt conclomrium
                                                                                                    development an
                                                 40 acres                 woo"                      60 acres



                                                 40 acres

                             40 acres

                                                 40 acres



                                                                                        558 acre parcel

                                                    10 acres







                                                                                 10 urit 0


                                   80  2 acre lots in
                                   160 act& subdivision






             Average density refers to development within a geographic area, such as that area in a community which may be
             planned for 'low density residential" development. Average density is established by dividing the total acreage within
             the specified area by the number of dwelling units planned for the same area.
                                                                                   Cannon Township Comprehensive Plan, Planning & Zoning Center, Inc.



         The Leelanau General Plan - Peninsular View                                       Growth Guidelines and Decision Maps
                                                                                                                       Page 5-3








           in size, it may or may not be an incorporated               Compact Commercial Centers. An area of
           municipality. Some employment opportunities                 commercial development not associated with
           exist within the rural center. Average parcel               any other commercial development. It exists
           densities ranging from 10,000 to 15,000                     independent of a traditional town or village
           square feet are common, mostly the result of                setting.     Often, little if any residential
           platted subdivisions.                                       development is associated with the compact
                                                                       commercial center area. Typical development
           Resort Center. A seasonally active area with                densities average one building for every three
           housing that is mostly geared to the needs of               (3) to five (5) acres, with some areas
           a transient population with limited public                  averaging as high as one building per ten (10)
           services and limited commercial facilities like             acre parcel.
           gift shops and restaurants. Average parcel
           densities are similar to that of the rural center,
           but may range as high as two (2) acres in                   TDR AND PDR
           some areas.
                                                                          Transfer of development rights (TDR) and
           Settlement. A small, relatively isolated                    purchase of development rights (PDR) are
           community which may not have an associated                  techniques which involve the sale of
           commercial center, typified by clusters of                  development rights. A development right is a
           residential parcels of one-half (1/2) to five acres         severable property right like an easement or
           in size. Minimal employment opportunities                   mineral right. Once all development rights are
           exist, if any.                                              sold, the property can thereafter never be used

                                                               Map 5-1
                                                       COMMUNITY TYPES








                                           0           5MI






                                       N




                                                                                             URBAN CENTER


                                                                                             RURAL CENTER
                                      +                                                  + RESORT CENTER
                                                                                             SETTLEMENT

                                                                                             SCATTERED STRIP
                                                                  A                          COMMERCIAL


                                                           A   + A
                                                       A
                                                      A





           Gro wM Guidelines and Decision Maps                                     The 4eelenau General Plan - Peninsular View
           Page 5-4









        for a structural development purpose (like a              the Intergovernmental Growth Management
        residential    subdivision      or commercial             Consortium (Consortium) of which Leelanau
        establishment). In most cases, nonstructural              County is a member.
        use rights (such as for agriculture or forest
        management) remain. TDR and PDR have                         TDR is a technique which permits
        special value as growth management tools                  protection of sensitive resources, renewable
        because they permit landowners to capture the             resource lands, historic resources, or other
        economic value of land for development                    areas of special community significance by
        purposes without actually developing it.                  reducing permitted development density in
        Unfortunately, TDR is not currently a legally             those areas while still allowing the landowner
        authorized technique for use by Michigan                  to capture the economic value of the
        communities, although it is used in seven other           development rights in the land. This is done
        states. Legislation has been drafted, but not             through the creation of "sending" and
        enacted, to permit its use in Michigan. The               19receiving" zones where development rights in
        legislation was drafted under the auspices of             sending zones are sold to buyers (developers)
                                                                  for use in receiving zones. Buyers of
                                                                  development rights can then build at a higher
                                                                  density than without development rights. See
                                                                  Figure 5-2. TDR will be most effective in
                                                                  Leelanau County if structured on a peninsula-
                            Figure 5-2.                           wide basis. Key agricultural lands and other
           TRANSFER OF DEVELOPMENT RIGHTS                         sensitive lands could be places into the
                                                                  sending zone. Multiple receiving zones could
                                                                  be established.     They would largely be in
                                                                  villages and in the southeast corner of the
                                                                  county (near Traverse City) or in an area
                                                                  proposed for a new town.

                                                                      PDR involves the purchase of development
                                                                  rights   (or   conservation     easements) for
                  1r.NV Th be,
                                                                  permanent     retirement, thereafter forever
                 TO A2FA VON qZ@hr,
                 FOR A  0 q,,,
                            4"                                    protecting the land from development. PDR is
                             'T C, 0,                             currently authorized under the Conservation
                                                                  and Historic Preservation Easement Act. New
                                                                  legislation (proposed by the Consortium) would
                                                           a      broaden this authority. If a way of financing
                                                           I      such purchases could be established, PDR
                                                           Z      could be used to purchase development rights
                                                           0
                                                           Z
                                                           C      on key parcels throughout the county to
                                                                  protect important public viewing opportunities,
                                                           ir     especially along public roadways.
                                Rupp

                                                                  P.A. 116
        Development rights are analogous to mineral rights. Once
        established, they could be bought and sold under a local      The Farmland and Open Space Preservation
        transfer of development rights program. It is an equitable Act (P.A. 116) provides an opportunity for
        way to allow a landowner to "capture" development value
        without changing land use.                                farmers to enroll land in the program for
                                                                  periods from 10 - 99 years in return for tax
                                                                  credit. For many active farmers, the tax credit


        The Leelanau General Plan - Peninsular View                                Growth Guidelines and Decision Wa-ps
                                                                                                            Page 5-5









                                                                             equals or exceeds property taxes. Many farms
                                   Map 5-2                                   in the county are enrolled. It is an important
                      P.A. 116 ENROLLED LANDS                                protection technique. A concerted effort
                                                                             should be made to encourage carefully
                                                                             considered enrollment as another growth
                                                                             management tool in those areas with prime
                               0         5MI
                                                                             orchard or prime farmland soils. Similarly, an
                                                                             analysis will be made and periodically updated
                                N                                            of parcels in which the P.A. 116 enrollment
                                                                             will soon terminate in order to identify parcels
                                                                              at risk" of conversion to other uses. (Map 5-
                                              4                              2.)



                                                                             CONCURRENCY

                                 @v %W                                           This     growth      management technique
                                                                             requires that new development occur only
                                                                             when the public facilities and services
                                                                             necessary to meet its service needs are in
                                 M for,                      LAND IN         place. Thus, if a paved road and/or sewer line
                                                            PA 116
                                                                             were necessary to mitigate impacts of a
                                                                             proposed new use, they will have to be
                                                                             constructed before, not after the new use was



                                                                  Figure 5-3

                                                        CONCURRENCY
                                                        A QUESTION OF BALANCE





                                                              .0 SHAMS
                                                               NOW& LAW   Dmbpmv
                                                               Drimw I   k-op"d"
                                                                pmv@      Of AdeJ99
                                                                          Pubk SOM=








                             FIRS
                           PROTECTION

                                      WADW YS


                                        PUBLIC                                                  LAND
                                       SERVICES                                                ELOPMENT

                                                                                                                                     Z
                                                                                                                                     Z






           Growth Guidelines and Decision Maps                                            The Leeanau General Plan - Peninsular view
           Page 5-6








         established. Currently, it is not easy to require            prepares a CIP and coordinates public facility
         new development concurrent with adequate                     improvements consistent with the established
         public facilities. See Figure 5-3. With good                 village and rural service districts, a strong tool
         planning and consistent implementation, it is                for guiding growth is created.
         possible to so require with some special land
         uses and planned unit developments. It is not
         possible to apply to a rezoning. In order for                OFFICIAL MAP
         this technique to be effective, it needs to be
         used in conjunction with capital improvements                   This technique involves mapping the
         programming. The Consortium has drafted                      location of all new proposed public facilities to
         enabling authority to use concurrency as a                   be constructed and all new public lands to be
         growth management tool in Michigan.                          acquired within a planning period. Both private
         Consistent      county/local      planning       and         and public development decisions can be
         coordinated capital improvement planning can                 improved by common knowledge of public
         give many of the same benefits without new                   infrastructure and facility improvements. This
         legislation.                                                 is most beneficial when mapped on a county-
                                                                      wide basis. Each local government should
                                                                      prepare and periodically update an official map
         VILLAGE AND RURAL SERVICE DISTRICTS                          and send it to the County Planning
                                                                      Department. There a single official map could
            The creation of village and rural service                 be prepared depicting all county agency-
         districts allows communities to identify areas               proposed public facilities with all the proposed
         in which specified public services will be                   local government facilities. It is best prepared
         provided during a planning period, areas in                  and updated in conjunction with a coordinated
         which partial or limited services will be                    CIP process. The Consortium has drafted new
         provided, and areas in which few if any public               official map legislation, but such maps can be
         services over and above current levels will be               prepared as part of a local planning process
         provided (rural service district). An urban                  without legislation. However, they have no
         services district should be established in the               legal consequence and are only a planning tool.
         southeast corner of Elmwood Township in                      The inclusion of proposed state and federal
         recognition of the urban character and service               public facilities would further strengthen the
         level of that area. The specific services to be              use of this tool.
         provided within the planning period for each
         services district must be identified. This                   LINKED OPEN SPACE SYSTEM
         approach helps direct growth into areas where
         necessary public services are adequate. It also                 As new development occurs on the
         permits the development of a long term public                peninsula, the existing network of open spaces
         service    strategy     linked to       a     capital        will become smaller and fragmented. By
         improvements program (CIP).                                  identifying the most important wildlife
                                                                      corridors and open spaces now, it is possible
                                                                      to create linkages that protect wildlife and
         CAPITAL IMPROVEMENTS PROGRAMS                                permit wise recreational use. This should be a
                                                                      primary consideration in the development of
            A CIP is an annual listing of proposed public             new local plans and peninsula-wide open space
         facilities or major improvements to be                       plans. Efforts may be made to acquire fee
         constructed in the next six years along with                 simple interests or conservation easements
         their proposed location, method of financing,                across such lands where they are not already
         when they will be constructed, and who is                    in public ownership. Other efforts to promote
         responsible for them. When each community in                 biodiversity should be encouraged whenever
         the county (including the county itself)                     feasible.



         The Leelanau General Plan - Peninsular View                                   Growth Guidelines and Decision Maps
                                                                                                                  Page 5-7





                                                      Open Space Zoning

               Open space zoning is a set of techniques                important because the image a person has of
           which permit residential development while                  the rural character of an area is typically
           maintaining a strong sense of rural community               formulated largely based on the experience of
           character and protection of environmental                   that area from the roadway corridor providing
           resources. Open space zoning establishes the                access to and through it. Consequently, if that
           protection of open space as the primary site                corridor changes from a natural or indigenous
           development consideration of which the                      rural character to one characterized more by
           clustering of dwelling units and/or lots is-a               intermittent large-lot single-family homes
           fundamental component. In this context,                     (often stripped adjacent to the county road)..
           clustering means the positioning or grouping of             then the perception of the character of that
           dwelling units or lots upon a small portion of              area has been dramatically altered.
           the site. The term clustering is applicable to
           both single family dwellings on individual lots
           in a small group surrounded by open space, as               Benefits of Open Space Zoning.
           well as to a group of dwelling units with
           shared wall construction.                                      There are a variety of public and private.:
                                                                       benefits associated with open space zoning.
                                                                       Public benefits include:
           The maximum provision of open space                          e Preservation of open space, preservation of.'
           consistent with the rural character of an area                 rural     character,       preservation of .
           is the pdority consideration in open space-                    environmentally sensitive areas, and,
           zoning provisions.                                             preservation of significant vistas.

                                                                        9 Close-to-home recreation opportunities.
              Open space zoning developments differ
           from traditional planned unit developments                   a Minimization of through traffic in residential...
           (PUD's) in that PUD's often place priority upon                areas.
           the clustering of dwellings around common
           areas to minimize infrastructure costs, and the              e Minimize public service costs.
           provision of open space is often a secondary
           consideration. In particular, there is usually less         Private benefits include:
           open space in a traditional PUD than in open
           space development. In addition, traditional                  a Allowing owners of large parcels, such as
           planned unit developments have been used                       farmers, another option to develop their
           more in urban and suburban locations as an                     land through methods other than the largp
           alternative to a traditional subdivision rather                lot split option.
           than    as    alternative    to    strip-residential
           development (a primary reason for its use in a               a Often, farmers can still go on farming in
           rural area). The maximum provision of open                     protected open space areas, but the value-
           space consistent with the rural character of an                of the land for residential purposes has
           area is the priority consideration in open space               been captured by the farmer - yet. no.
           zoning provisions.                                             houses are built.

              Open space zoning is characterized by three               9 Existing rural residents are assured of
           fundamental components. First, a significant                   maintenance of the long term rura.1
           portion of the site is protected as permanent                  character of their area. This also include a
           open space. Second, residences are clustered                   greater assurance of minimized taxes for
           to maximize the quantity and quality of open                   public services since higher service levels
           space on the site. Third, site development           -         are not needed.
           maintains a low visual impact, particularly
           along the public roadway. This is very                      Soux& PA&*mV &-W ZatmV Afews, Match 1992 pvs 7 &"d 8.

           Growth Guidelines and Decision Maps                                    TheEeelanau General Plan - Peninsular View
           Page 5-8










         IMPACT ASSESSMENT                                               OPEN SPACE ZONING


             Uniform procedures and checklists for                       properties with non-prime agriculture or forest
         evaluating projects in or near sensitive                        land soils that are not subject to more specific
         environmental areas or with significant public                  protection mechanisms could be developed
         service impacts should be developed and                         without unnecessary loss of open space with
         widely distributed for use by all local                         a variety of open space protection techniques
         governments in the county. This will permit                     (see previous page). Sample zoning language
         equal treatment of projects while coordinating                  has been developed as part of the Grand
         decisions on developments that may have                         Traverse Bay Region Development Guidebook
         impacts beyond the borders of a single                          project. A variation should be widely promoted
         jurisdiction.                                                   for uniform use across the peninsula. See
                                                                         Figure 5-4.
         MODEL ORDINANCES


             Similarly, model ordinances may be                          GIS AND DATA SUPPORT FROM
         developed and made available for adoption and                   THE COUNTY PLANNING DEPARTMENT
         use throughout the county. The sample
         ordinances prepared as part of the Grand                            The Leelanau County Planning Department
         Traverse Bay Region Development Guidebook                       will provide mapping (using its GIS system),
         project (which Leelanau County cosponsored)                     data, and technical support services to local
         will be the starting point for this effort. These               governments engaged in planning activities
         sample regulations address land division and                    compatible with the plan at cost or less (at a
         access control         issues, natural resource                 subsidized rate).
         protection issues, and community character
         issues.


                                                               Figure 5-4
                                                 ALTERNATE ZONING PATTERNS







                                                                                                                                CL
                                UE


                                                                                                                                E
                                                                                                                                r











                            Traditional Zoning 20 Housing Units                  PEARL Option      20 Housing Units
              Traditional zoning pattern (left) contrasted with an open space or rural cluster zoning pattern (right).




         The Leelanau General Plan - Peninsular View                                        Growth Guidelines and Decision Maps
                                                                                                                        Page 5-9








            LEELANAU GENERAL PLAN                                         e Important Natural Features
            DECISION MAPS                                                   Major wooded areas including the
                                                                            southwest forests, Northport woods are
               Following is a description of three maps                     among the important natural features
            which graphically illustrate key planning                       shown. Lakes, wetlands, key streams and
            concepts promoted by the Leelanau General                       drains are among the selected water
            Plan. These maps are intended to help explain,                  features appearing on the map. Dune lands,
            and thereby improve understanding of these                      including those classified by the Michigan
            concepts. It is expected that these maps will                   Department of Natural Resources as
            be used by decision makers when carrying out                    "critical dunes," are also shown.
            their responsibilities for future local or county
            planning or development regulatory decisions.                o  Urban Areas
                                                                            Commercial and residential areas are the
            Future Land Use Map                                             primary urban classes delineated on the
                                                                            Future Land Use Map. Residential areas are
               Preservation of peninsula character is the                   classified as high, medium, or low density.
            central focus of the Future Land Use Map. As
            previously mentioned in this plan, the visual                   Terrain
            character of familiar landscapes are important                  Three major topographic features of the
            image guideposts people use to find their way                   Leelanau Peninsula are displayed in map
            in daily activities.                                            form. These include glacial ridges, valleys,
                                                                            and the Northport Flats.
               The Future Land Use Map presents a
            generalized pattern of uses. The Leelanau
            General Plan is not, nor should it be, a detailed           Policies Map
            duplicate of a zoning map. Small-area land use
            decisions should appropriately be made at the                   The Policies Map is a combination of the
            scale of township and village plans and in                  various summary maps included in the
            subsequent zoning actions, each compatible                  chapters of the Leelanau General Plan. The
            with the policy guidelines of the Leelanau                  map highlights local government initiatives and
            General Plan.                                               specific land uses, policies or concerns, some
                                                                        of which are translated into land use
               The Future Land Use Map does not, nor                    designations on the Future Land Use Map. The
            should it, distinguish between existing and                 Policies Map uses symbols and generalized
            proposed uses, or different levels of road                  patterns to suggest its intentions.
            improvement or "overlay" concepts such as
            environmentally sensitive districts. The map                    The Policies Map and Future Land Use Map
            blends them into the overall fabric of the plan.            are equally important elements of the Leelanau
            The Future Land Use Map is prepared in a way                General Plan and should be viewed together.
            to more accurately identify land use areas and              The various elements appearing on the Policies
            designations.                                               Map are as follows:

            The various elements appearing on the Future                    Community types
            Land Use Map are as follows:                                    Community types shown in terms of
                                                                            "average density" are depicted on the
               Agricultural Land                                            Policies Map to allow citizens and officials
               Agricultural lands depicted on the map                       to identify areas most likely to demand
               include the central peninsula farms, ridge-                  certain public services. The five community
               top farms, and orchards.                                     types shown on the map are urban centers,
                                                                            rural centers, resort centers, settlements,



            Growth Guidelines and Decision Maps                                     The Leelanau General Plan - Peninsular View
            Page 5-10









              and     compact        commercial         centers.          with the function of roadway and addresses
              Community service districts are also                        the degree to which the road serves to provide
              presented on the map.                                       local access to abutting properties versus
                                                                          longer     trips    connecting       more      distant
             ï¿½Sensitive Environments                                      destinations by higher level roadways. Roads
              Habitats of unique and endangered species,                  that run continuously for several miles and
              as identified by the Michigan Department of                 serve to connect several areas together, tie
              Natural Resources, are shown on the                         into other important roadways and are the
              Policies Map. Wetland areas, stream                         most direct means of travel between
              corridors, dune lands, and high risk erosion                communities and other highways would
              areas are among the sensitive environments                  probably be shown as an arterial roadway.
              rendered on the map.                                        Likewise, roads intended to serve only local
                                                                          travel would be classified as such. No State
             ï¿½Public/Cluasi-public Facilities                             trunkline ("M" roads) has a classification under
              Boating harbors, public water access                        that of major arterial.
              points, and historic places are included in
              this category. Public water access points                       Other features shown on the Transportation
              shown include designated Department of                      Map include airplane landing fields, the
              Natural Resources access sites and public                   Leelanau Transit Company Railroad, marina
              road ends.                                                  facilities, and roads with improved shoulders
                                                                          that may        be     used for non-motorized
             ï¿½Recreation Facilities                                       transportation. The most significant proposed
              The     Sleeping      Bear     Dunes       National         road improvements are also illustrated on the
              Lakeshore, Leelanau State Park, Pere                        map.
              Marquette State Forest, local parks and golf
              courses are among the recreational facilities                   A more formal definition of the road
              included on the Policies map.                               classification scheme follows:

             ï¿½Institutional Facilities                                    Maior Arterial: The function of a major arterial
              Schools and government facilities are                       is to convey traffic between municipalities and
              shown on the map, as are major solid                        activity centers, and to provide connections
              waste disposal facilities consisting of the                 with intrastate and interstate roadways.
              landfill and recycling drop-off stations.                   Significant community, retail, commercial and
                                                                          industrial facilities may be located along major
             ï¿½ Other                                                      arterials. Major arterials are intended to
              Other elements of the Policies Map include                  accommodate higher speeds and levels of
              illustration of the following:                              service, not to provide access. Therefore,
                - Major "receiving areas" for Transfer of                 access management is desirable for preserving
                   Development Rights (TDR) programs                      capacity. Of course, travel speed are reduced
                - Target       areas     for    Purchase        of        in heavily populated areas.               The state
                   Development Rights (PDR) programs                      trunklines of the Leelanau Peninsula serve as
                - Known mineral deposit areas                             major arterials. Non-motorized traffic should be
                                                                          limited, if not prohibited on major arterials.

          Transportation Map                                              Minor Arterial: A minor arterial serves as a
                                                                          major "feeder" street. Signals may exist as
              The Transportation Map divides the road                     needed, and side street traffic must yield to
          system       into    functional       classifications.          traffic on the minor arterial. Minor arterial
          Functional classification does not deal with                    interconnect residential, retail, employment
          either number of lanes or right-of-way. It deals                and recreational activities within and between



          The Leelanau General Plan - Peninsular View                                        Growdi Guidelines and Decision Maps
                                                                                                                        Page 5-11








           communities. Operating speeds are may be                       Minor Collector:        Minor collectors provide
           lower than those of major arterials, but seldom                access to individual parcels and carry traffic to
           fall below forty-five (45) mile per hour. Some                 and from access roads. Traffic usually
           non-motorized traffic can be accommodated in                   originates or has a destination point in the
           minor arterials. Most roads included in the                    immediate area of the minor collector. Local
           county primary network are classified as minor                 county roads of one to five miles in length are
           arterials.                                                     typical of those classified as minor collectors.
                                                                          Non-motorized traffic makes greatest use of
                                                                          minor collectors. Travel speeds range from
           Maior Collector: A major collector carries and                 thirty (30) to forty-five (45) miles per hour, but
           distributes traffic between access roads, minor                are higher on open stretches.
           collectors and minor arterials. The primary
           function of the major collector is free traffic                Access Roads: Access roads serve to provide
           flow, therefore, access to homes, parking, and                 access to any land use setting. Traffic having
           deliveries should be somewhat restricted.                      origin or destination on the street is typical of
           Roads in this category can easily provide for                  that found in this classification. Trip length is
           non-motorized traffic. In some areas, minor                    usually short and movement is incidental,
           retail or other commercial establishments may                  involving travel to and from collector facilities.
           be present. Some county primary roads and                      Maximum travel speeds reach twenty-five (25)
           longer local roads are classified as major                     miles per hour and may be lower in certain
           collectors. Travel speeds range from thirty-five               circumstances, i.e. school zones. These roads,
           (35) to forty-five (45) miles per hour, but are                usually thought of as community residential
           higher on open stretches.                                      and subdivision streets, are not conducive to
                                                                          through traffic.




                                                                                                                          2



                                                                                     pA








                                                                                 4 7 r        3
                                                                      '7


                                                                                                                47
           -77"                                                   Tt.                                           -
                                                                                       Z:77




                                          Mn,

                                            N=
                                                                                                           %




                                                 7
                                                        7: @77

                ?


           Growth Guidelines and Decision Maps                                        The Leelanau General Plan - Peninsular View
           Page 5-12









                                                          Map 5-3a
                                                 FUTURE LAND USE MAP
                                                      Agricultural Land





                                                   F_L-@@                                        %
                                                  0               5MI









                                              N




































                            CENTRAL PENINSULA      KKKKM   RIDGE -TOP                  ORCHARDS
                                 FARMS                       FARMS












        The Leelanau General Plan - Peninsular View                                 Growth Guidelines and Decision Maps
                                                                                                             Page 5-13








                                                           Map 5-3b
                                                  FUTURE LAND USE MAP
                                                  Important Natural Features






                                                               0              5MI








                                                          N












                         SOUTHWEST FOREST                    9M    WETLAND AREAS                       KEY STREAMS

                         NORTHPORT WOODS                            DUNE LANDS                         LAKES






          Growth Guidelines and Decision Maps                                  The Leelanau General Plan - Peninsular View
          Page 5-14









                                                          Map 5-3c
                                                 FUTURE LAND USE MAP
                                                         Urban Areas








                                                   0               5MI









                                                   N


















































                          COMMERCIAL                      HIGH DENSITY
                          AREA                            RESIDENTIAL AREA


                          RESORT                          MEDIUM DENSITY             LOW DENSITY
                          AREA                            RESIDENTIAL AREA     F-1 RESIDENTIAL AREA




         The Leelanau General Plan - Peninsular View                                 Growth Guidelines and Decision
                                                                                                             Page 5-15








                                                            Map 5-3d
                                                    FUTURE LAND USE MAP
                                                              Terrain









                                                       0               5MI
















                                                                          4ï¿½r,


                                                                                         40
                                                                                          v


                                                                         @/'//"ï¿½rp


                          ovum  GLACIAL                        VALLEY                    NORTHPORT
                          IN RIDGE                                                       FLATS




          Growth Guidelines and Decision Maps                                    The Leelanau General Plan - Peninsular View
          Page 5-16









                                                     Map 5-4a
                                                   POLICIES MAP
                                                 Community Types









                                                            0          5MI










                                                           N



















                                                                  At
                                                                 A



                             URBAN SERVICE
                             DISTRICT                    RURAL CENTER         At SETTLEMENT

                             VILLAGE SERVICE             SCATTERED
                             DISTRICT                    STRIP COMMERCIAL         RESORT CENTER





       The Leelanau, General Plan - Peninsular View                           Gro w6 Guidelines and Decision 78-ps
                                                                                                     Page 5- 17








                                                                Map 5-4b
                                                             POLICIES MAP
                                                        Sensitive Environments






                                                            0                   5M1
















                                                                                                          oil
                                                                                           4..". NI 1.








                                                                                           oil






                  STREAM
                  CORRIDOR


                  WETLAND                     HIGH-RISK                       SENSITIVE                       UNIQUE
                  AREA                        EROSION AREA                    PLANT COMMUNITY                 GEOLOGIC FEATURE



                  CRITICAL                    SENSITIVE                       ENDANGERED                      OTHER UNIQUE
                  DUNE AREA                   ANIMAL COMMUNITY                PLANT SPECIES              +    NATURAL FEATURES



           Growth Guidelines and Decision Maps                                        The Leelanau General Plan - Peninsular Vie;-v
           Page 5-18









                                                        Map 5-4c
                                                     POLICIES MAP
                                      Public/Quasi-Public and Institutional Facilities









                                                       0            5MI











                                                      N






















                                      4L























                       BOATING HARBOR
                       PUBLIC WATER                   SANITARY LANDFILL            GOVERNMENT
                       ACCESS POINT               A                                FACILITY
                                                      RECYCLING                    SCHOOL
                       HISTORIC PLACE                 DROP-OFF STATION






                                                                                 Growth Guidelines and Decision Maps
         The Leelanau General Plan - Peninsular View                                                     page 5- Iq








                                                        Map 5-4d
                                                      POLICIES MAP
                                                   Recreation Facilities








                                                             0            5MI











                                                            N
































                                 SLEEPING BEAR DUNES        PERE MARQUETTE         GOLF COURSE
                                 NATIONAL LAKESHORE         STATE FOREST

                                 LEELANAU                   TOWNSHIP               COUNTY
                                 STATE PARK                 PARK                   PARK






         Growth Guidelines and Decision Maps                               The Leelanau General Plan - Peninsular View
         Page 5-20









                                                         Map 5-4e
                                                      POLICIES MAP
                                                      Other Facilities






                                                        I                                              Al@
                                                        0             5MI











                                                 N







































                                 TARGET AREA                RECEIVING AREA"          KNOWN MINERAL
                                FOR PDR PROGRAM            FOR TDR PROGRA            DEPOSIT AREA









        The Leelanau General Plan - Peninsular View                                Growth Guidelines and Decision Maps
                                                                                                          Page 5-21








                                                               Map 5-5
                                                     TRANSPORTATION MAP







                                                             0              5MI































                                                        bi      A-

                                      PROPOSED                                SCHEDULED
                                      ROAD IMPROVEMENT                        ROAD IMPROVEMENT
                                                                                  AIRPLANE
                                  ROAD CLASSIFICATIONS                            LANDING FIELD
                            MAJOR ARTERIAL         MINOR ARTERIAL                 LEELANAU TRANSIT
                            MAJOR COLLECTOR        MINOR COLLECTOR                COMPANY RAILROAD
                                         ACCESS ROAD                              MARINA FACILITIES



          Growth Guidelines and Decision Maps                                      The Leelanau General Plan - Peninsular View
          Page 5-22
































                                                                                                          4. 41






                                                                                                                                                 11 v



                                                                                                                                                       Yi




                                                           16
                                                                                      A4


                   -1 Of,
                                       yj


                                                                                                          4 'k,







                                                                                                  PHR
                                                                                                 iW. 'Mr,f j,

                                                                                                                   P4

                                  Part Two:                                                          NCTIONAL VIE









         PART TWO: FUNCTIONAL VIEW


            Part two of the Leelanau General Plan takes
         a traditional "functional" view of issues and
         proposed policy initiatives to address those
         issues. Specific policies and action statements
         are presented in seven functional topic areas to
         flesh out the general growth management
         strategy presented in Part One. The seven
         chapters of Part Two are listed below:

            Chapter 6: Natural Resources and the
            Environment


            Chapter 7: Transportation

            Chapter 8: Public Facilities and Physical
            Services


            Chapter 9: Non-municipal Public Services

            Chapter 10: Economic Development

            Chapter 11: Human Services and Facilities

            Chapter 12: Land Use









                                                                              _s,





                                    ...........




















         A new home under construcdon in Leelanau CountY.



         The Leelanau General Plan - Funcdonal View









                                                            Chapter 6
                               NATURAL RESOURCES AND THE ENVIRONMENT



         INTRODUCTION                                                  0     air quality
                                                                       0     water quality
             Few locations within the State of Michigan,               0     groundwater quality
         nor the United States as a whole, are so rich in              0     woodland and hillside development
         the quality and variety of natural resources as               0     protection of sensitive natural features
         the Leelanau Peninsula. These resources range                 0     farmland protection.
         from the most common, including summer air
         breezes and abundant high quality water
         resources, to more unique and sensitive                     Air Quality
         resources, such as world class dunes,
         extensive      wetlands,       rolling     hillsides,           Air quality on the peninsula is quite high,
         woodlands, special flora and fauna, and more.               but it is lower than it used to be. This is largely
         (See Working Paper #9 for more background                   due to ozone pollution. Ozone is a gas
         information.)


             The natural resources of the peninsula are
         vitally important in providing a strong and
                                                                               -N
                                                                                   7%
         healthy environment. The quantity and quality
         of natural resources throughout the peninsula
         are the fundamental reasons for living on the
         peninsula. Also, they are critically important to
         the economy as its tourist industry thrives
         upon the peninsula's natural landscape.

             Future growth and development will         place
         increasing pressures upon the quantity and
                                                                                                    LI If
         integrity of the peninsula's natural resources.
         If the current resources are to be protected for
         future generations, and yet still be "utilized"
         for economic benefit, purposeful actions must
         be taken to assure a healthy balance between
         growth, development, and the peninsula's
         natural environment. The Leelanau General
         Plan recognizes that a healthy sustainable
         economy depends upon a healthy environment.
         The plan further recognizes that maintaining
         environmental quality and improving the local
         economy need not be conflicting objectives,
         and are in fact, mutually reinforcing.



         ISSUES


             The  principal issues related to natural re-
         sources   and the environment include:

                                                                   Leelanau Enterprise Photo


         The Leelanau General Plan - Functional View                                  Natural Resources and the Environment
                                                                                                                 Page 6-1









           formed when certain vehicular and industrial
           pollutants react in the presence of heat and                                     Map 6-1
           sunlight. The ozone gas is an irritant and                        OZONE AIR QUALITY STANDARD
           causes respiratory problems in humans.                                          EXCEEDED
                                                                          FL@
           Evidence suggests that it is industrial activities             0       50 U1
           from outside of Michigan which pose the                                        ---WrLEELANAU
           greatest ozone threats. Major concentrations
           of smog (which heighten ozone levels) cross                                              COUNTY
           Lake Michigan from the Greater Chicago Area.
           See Map 6-1. The regional impacts of air
           pollutants is further accentuated by the fact
           that data gathered on Beaver Island shows a
                                                                                            N
           nine year average rain pH of 4.2; anything less                                  k
           than 5.6 is considered "acid rain." Long teem
           exposure to acid rain has the potential to
           damage trees and aquatic life.                              WI SCONS I N
                                                                                                       MICHIGAN

           Seven of the peninsula's largest lakes are
           classified as ofigotrophic, the highest of three
           la@re quality classifications related to water                                                         N
           bigiogical productivity.




              While      future     state     and      federal           ILLINOIS                           AREAS RECENTLY
           environmental regulations may assist in the                                                      EXCEEDING
                                                                                                            OZONE SI
           control of smog conditions, air quality on the
           peninsula coul d decline by locally generated air                                INDIANA
           pollutants. For example, future growth and
           development will increase . the number of                  Water Quality
           vehicles along the roadways, particularly in
           and near Traverse City.                                        Eight percent of the peninsula's surface
                                                                      cover consists of inland lakes. There are more
              Trends and conditions suggest the need for              than eight inland lakes of 175 acres or more in
           an expanded monitoring system and a regional,              size, the largest being South Lake Leelanau
           approach to air quality management. If this is             covering nearly 5,400 acres. Seven of the
           started while air quality is still good, greater           peninsula's largest lakes are classified as
           options will be available to prevent future                oligotrophic, the highest of three lake quality
           degradation. Eventually it may be necessary to             classifications related to water biological
           base future land use decisions, in part, upon              productivity. Though the quality of the lakes is
           the regional implications of such decisions and            generally high, current conditions pose serious
           upon an appreciation of the sensitive dynamics             challenges to the maintenance of this quality
           between land use, air quality, and impacts felt            level. Development along inland lake shorelines
           both locally and many miles away. The new                  largely relies on private septic systems for
           federal Clean Air Act is already requiring this in         sewage disposal. Dysfunctional systems, as a
           metropolitan areas.                                        result of improper location, construction,
                                                                      operation, or maintenance, increases septic
                                                                      effluent leeching directly into area water
                                                                      bodies and decreases water quality. The use of
                                                                      fertilizers and pesticides, from both residential      MW


           Natural Resources and the Environment                                  The Leelanau General Plan - Flincfional View
           Page 6-2









         and agricultural land, further challenges the             underground water resources are overlain by
         long term quality of the peninsula's inland               highly permeable soils and thus easily
         lakes.   Improperly     managed construction              susceptible to contaminants leeching down
         activities and inappropriate land development             from the land surface (septic system leachate,
         locations encourage erosion and sedimentation             petroleum spills, other hazardous spills, etc.).
         of the lakes.                                             Even those aquifers which are somewhat
                                                                   better protected by being situated below low
                                                                   permeable clay soils or rock are vulnerable to
         A# principal water courses in the peninsula are           contamination if adjacent aquifers become
         designated trout streams, an indication of their          contaminated as underground water often
         high water quality level.                                 flows freely between aquifers. There are 35
                                                                   state designated "307 sites" on the peninsula
                                                                   where serious surface and groundwater
                                                                   contamination has been discovered. One such
            More than two dozen creeks and rivers                  site, the Grand Traverse Overall Supply, is on
         assist in collecting stormwater runoff and                the federal CERCLA list of the top 79 sites in
         carrying it to inland lakes as well as to Lake            Michigan needing cleanup. New sites are being
         Michigan and Grand Traverse Bay. These                    discovered yearly. While attention is being
         creeks and rivers reflect a far wider quality             focused on uncovering and cleaning up
         range than do the lakes of the peninsula,                 contaminated sites on the peninsula, it is
         though it can be said that the rivers and                 equally important that steps be taken to
         streams are of relatively very high quality. With         prevent the creation of new contamination
         two small exceptions, all water courses in the            sites.
         peninsula are designated trout streams, an
         indication of their high water quality level.                                  Map 6-2
         There are, however, portions of major water                          AQUIFER VULNERABILITY
         courses, including Houdek Creek, which are
         currently showing the negative impacts of land                                0       5MI
         use and development activities. Sedimentation
         and agricultural chemicals are principal threats
         facing streams today. Best management
         practices to minimize the negative impacts of
         stormwater runoff are needed. Additional                               N
         monitoring is also needed.


         Approximately 60% of the mainiandportion of
         the peninsula rests upon "sensitive" aquifers.




         Groundwater Quality

            Groundwater is the unseen water resource
         and one which nearly the entire peninsula is
         dependent upon for potable water. This                              HIGH               MODERATE
         reliance for basic human health rests on a                     E]   VULNERABILITY      VULNERABILITY
         fragile resource at best. Approximately 60% of                           V= MOD.TO HIGH
         the mainland portion of the peninsula rests                                   VULNERABILITY
         upon "sensitive" aquifers. See Map 6-2. These



         The Leelanau General Plan - Funcdonal View                                 Natural Resources and the Environment
                                                                                                               Page 6-3








              Under current trends, future growth and
          development on the peninsula will further                                  Map 6-3
          jeopardize groundwater and surface water                            PRIME FORESTLANDS
          resources. The lack of uniform stormwater                                Fl-@                            0
          management techniques to control erosion and                             0     5MI
          sedimentation leads to further degradation of
          lakes and streams as does the practice of
          inappropriate application of fertilizers and
          pesticides. The lack of a comprehensive septic
          system monitoring and of an improvement
          program continues to allow inadequately
          treated human waste to enter the peninsula's
          lakes and groundwater resources. The lack of
          a well established monitoring program to                              t
          provide baseline data and benchmarks of
          current water quality conditions makes future
          water quality data that much more difficult to
          decipher. The collection and compilation of
          well records and other water quality data into
          the county's GIS system will be a major step
          forward.


                                                                      PRIME
                                                                      TIMBERLAND            TIMBERLAND OF
          Woodlands and Hillsides                                     UNIQUE                REGIONAL IMPORTANCE
                                                                      TIMBERLAND

             Woodlands and hillsides are abundant
          natural resources throughout the peninsula.
          Shaping the rural character of the peninsula,                              Map 6-4
          woodland stands are often found covering the                           STEEP SLOPES
          peninsula's rolling terrain. See Map 6-3 and 6-
          4. The hillsides, at times in combination with
          the woodlands, are the focus of many dramatic                        0        5MI
          vistas and define many of the visual corridors
          throughout the peninsula. The woodlands
          provide habitats for much of the peninsula's
          animal and plant life and provide economic                        N
          returns through harvesting and regeneration.
          These resources will also become increasingly
          threatened as growth and development
          continue. Market conditions and consumer
          preferences often make woodlands and
          hillsides attractive home sites. As increased
          residential development occurs, incremental
          encroachment      upon the      hillsides and
          woodlands can be anticipated. At present only
          very limited county and local programs
          effectively  preserve    the   functional    and
          aesthetic values of these resources.
                                                                E
                                                                    SLIGHT             SEVERE            MODERATE
                                                                  J                    > 18 %       02



          Natural Resources and the Environment                             The Leelanau General Plan - Func6onal View
          Page 6-4











                                                                  Sensitive Natural Features
                             Map 6-5
                        CRITICAL DUNES                               The abundance of the peninsula's more
                                17%-r-L-m                         common resources, including clean air, water,
                                0     5MI                         woodlands, and hillsides, is nearly matched by
                                                                  abundant sensitive environmental resources.
                                                                  Floodplain areas provide for the retention of
                                                                  runoff associated with heavier rains. In
                                                                  accommodating periodic heavy runoff flows,
                                                                  the floodplains of the peninsula support special
                                                                  plant and animal ecosystems dependent upon
                                                                  the floodplain environment. While floodplain
                                                                  areas on the peninsula are few due to the
                                                                  limited number of major rivers, abundant lake
                                                                  waters, and the sandy soils, they are
                                                                  particularly vulnerable to changes in land use.

                                                                     Wetlands include marshes, swamps, and
                                                                  other usually low areas between dry land and
                                                                  open water. Wetlands provide a multitude of
                                                                  vital benefits. They serve as filters which
                                                                  minimize the amount of organic materials and
                                                                  sediments discharged into streams and lakes
                           BARRIER         EXEMPLARY              while at the same time they retain stormwater
                           DUNES           DUNES                  runoff .and limit flood impacts. Wetlands also
                                                                  provide ideal habitat for wildlife and are vital
                                                                  links in the peninsula's overall ecosystem. The
                             Map 6-6                              sensitivity of this resource is perhaps best
                  HIGH RISK EROSION AREAS                         illustrated by the fact that even minor changes
                                                                  in the water levels of marshes, swamps, and
                                                                  other wetland environments can dramatically
                            0        5MI                          impact the quality of the wetland resources
                                                                  and their long term viability.

                                                                      Lake Michigan shorelines (including Grand
                                                                  Traverse Bay) and dunes are also sensitive and
                                                                  unique environmental resources. See Map 6-5.
                                                                  Seemingly endless shorelines and monumental
                                                                  dunal formations epitomize the grandeur of the
                                                                  area. While these resources serve as critical
                           t                                      components of the peninsula's tourism and
                                                                  recreation industry, they are particularly
                                                                  vulnerable to wind and wave action, as well as
                                                                  to any land use and development activities
                                                                  which disturb the stability of the dunes. The
                                                                  clearing of vegetation along the shorelines and
                                                                  dunes seriously increases their susceptibility to
                                                                  erosion, shifting, and demise. Disturbance of
                        HIGH RISK                                 their natural character by land use activities
                        EROSION AREA                              heightens their vulnerability to winds and


         The Leelanau General Plan - Functfonal View                              Natural Resources and the Environment
                                                                                                            Page 6-5








          waves, and other climatic forces. Many of the               To date, few local municipalities on the
          peninsula's    shoreline    areas    and    dunal        peninsula have adopted programs to assure the
          formations are considered "high risk erosion             continued quantity and quality of these
          areas. "  See Map 6-6. The significance of               sensitive natural resources. The incremental
          these shoreline areas is highlighted by their            consumption of land for residential and other
          inclusion for protection under the Shorelands            intensive land uses can be expected to
          Protection and Management Act. Similarly, the            encroach directly upon these resources, or
          Sand Dune Protection and Management Act                  encroach upon the ecosystems within which
          serves to protect designated "critical dune              these resources are found. Reliance upon state
          areas", including Sleeping Bear Dunes and the            and federal regulatory programs will not be
          Empire Bluffs as well as less prominent dune             adequate to assure the integrity of the
          areas.                                                   peninsula's sensitive environmental resources.
                                                                   The    lack   of   resource    base-line    data,
             The Lake Michigan shoreline and          dunal        monitoring, and evaluation of the effectiveness
          formations harbor yet another sensitive                  of protection programs prevents wise future
          environmental resource - threatened and                  decisions     regarding     natural     resource
          endangered     plant and       animal species.           management initiatives and policies. At
          Inventories by the Michigan Department of                particular risk are the sensitive environmental
          Natural Resources have identified numerous               areas at the edge of the extensive peninsula
          unique plant and animal species on the                   acreage in public ownership including the
          peninsula which rely largely upon shoreline and          Sleeping Bear      Dunes National Shoreline,
          dune areas for their survival. Other threatened          Leelanau State Park, and Pere Marquette State
          species which rely upon a more inland                    Forest.
          environment have also been identified. The
          fact that these plant and animal species are
          already considered unique due to their                   None of the peninsula townships have adopted
          threatened survival emphasizes the need to               substantive farmland protection policies nor
          prevent disturbances in the ecosystem in                 effective tarmlandprotection zoningprograms.
          which they thrive.



                                                                   Farmland
          Reliance upon state and federal regulatory
          programs will not be adequate to assure the                 Farmland is a special natural resource of the
          integrity of the peninsula's sensitive                   peninsula. See Map 6-7. Orchards are the
          environmental resources.                                 dominant land cover. See Map 6-8. They
                                                                   contribute greatly to the economic well being
                                                                   of the peninsula as well as to its beauty and
             Shorelines of inland lakes are also sensitive         pastoral character. As important as this
          natural resources. The calmer waters and areas           renewable natural resource is, there has been
          of interface between the land and water are              a decline in the number of acres devoted to
          particularly important habitats for wildlife and         farming over the past several decades. The
          plant life. Understandably, these areas are also         incremental conversion of farmland into
          actively sought out for development and                  residential land uses has led to a cumulatively
          recreational use. The resulting threat to these          destructive trend in the protection of this
          environments through soil erosion and                    resource. Typically, once the farmland is
          sedimentation, disturbance of the natural                converted to another use, it rarely reverts to
          shoreline and vegetation, and leachate from              agriculture. Fragmentation of farmland through
          faulty septic systems is a concern today and             the splitting of large farmland parcels for
          will become more significant as the peninsula
          population grows.


          Natural Resources and the Environment                               The Leelanau General Plan - Functional View
          Page 6-6










                                                                        residential use absorbed farmland as much or
                                Map 6-7                                 more than the farmland converted to actual
                    IMPORTANT FARMLANDS                                 residences, roads, and yards. The increasingly
                                    F-,-@                               dispersed settlement pattern across the
                                   0       5MI                          peninsula is the reason why this irreplaceable
                                                                        resource is being chipped away. (See Working
                                                                        Papers #5 and #10).

                                                                           Under present conditions, this pattern can
                                                                        be    expected      to    continue. We must
                                                                        acknowledge the conflicts which will arise
                                                                        when farmers and other large landowners try
                                                                        to "capitalize" on development potential by
                                                                        subdividing. However, none of the peninsula
                                                                        townships have adopted substantive farmland
                                                                        protection policies nor effective farmland
                                                                        protection zoning programs. Previously, there
                   IN                                                   has been little effort expended in identifying
                                                                        those areas of the peninsula which reflect the
                                                                        combination of characteristics necessary to
                                                                        support the long term economic viability of
                                                                        agriculture. The maps prepared as a part of
                                                                        this General Plan, however, now can establish
                     PRIME                   UNIQUE                     the basis for a realistic and defensible farmland
                     FARMLAND                FARMLAND                   protection program.


                                Map 6-8                                 The lack of resource base-line data,
                      ORCHARD SUITABILITY                               monitoring, and e valuation of the effectiveness
                                    r--r-L-7                            of protection programs prevents wise future
                                   0       5MI                          decisions regarding natural resource
                                                                        management initiatives and policies.




                                                                        A FRAMEWORK FOR FUTURE POLICY


                                                                           Trends and current conditions negatively
                                                                        affecting the peninsula's natural resources
                                t                                       have resulted from the lack of a focused
                                                                        resource protection program throughout the
                                                                        peninsula. Residents are coming to realize that
                                                                        the resources are critical to their future
                                                                        welfare, and they are recognizing the
                                                                        immediate need for a more responsible
                                                                        approach to resource protection. The Leelanau
                                                                        General Plan recognizes the critical link
                                                                        between economic, social, and healthful well-
                                                                        being and protection of its natural resources.
                   MOST SUITED          MODERATELY SUITED               The plan seeks to establish a far more
                   ORCHARD SOILS        ORCHARD SOILS



         The Leelanau General Plan - Functional View                                     Natural Resources and the Environment
                                                                                                                      Page 6-7








           proactive,    recognizing     that    long     term           The General Plan recognizes that the quality
           protection must originate from a purposeful,               of a single natural resource may vary across a
           strategic, and comprehensive conservation                  township, and that the plan must respect the
           program.                                                   practical    opportunities     and     constraints
                                                                      associated with resources of varying values.
              At the heart of this program is the adoption            To this end, the plan calls for the identification
           of a land and water stewardship ethic by all               of those resource areas of the peninsula which
           populations of the peninsula including local               are   characterized      by    particularly    high
           government officials, residents, real estate               productivity and provide the basis for long
           brokers,    farmers,     students,     and     land        term economic viability and protection. This is
           developers. The future of the peninsula                    especially applicable to prime agricultural (and
           depends on how its people manage its                       especially orchard) lands, but should also be
           abundant natural resources. The widespread                 extended to include forestlands, mineral
           adoption of a land and water stewardship ethic             deposits, and other resources of economic and
           requires broad public understanding of the                 natural ecosystems importance.
           dynamics of ecosystems, the relationship and
           impacts between natural resources and land                    These and other resource areas such as
           use, and the peninsula's economy as it relates             wetlands, dunes, shorelands, and wildlife
           to the natural environment. This understanding             corridors must be provided with increased
           must be strengthened by continued research                 protection through better coordinated local
           and evaluation of the dynamic relationships                stewardship. This stewardship should be
           between environmental costs and economic                   implemented through a number of strategic
           gains.                                                     initiatives including: 1) preparation of model
                                                                      ordinances for environmental protection for
                                                                      local   use,     including    development of
           The future of the peninsula depends on how its             environmental overlay zoning districts and anti-
           people manage its abundant natural resources.              land fragmentation provisions; 2) inclusion of
                                                                      flexible site design standards within local
                                                                      zoning    ordinances     to    permit increased
                                                                      preservation of natural resources while still
                                                                      meeting the intent of the ordinances; 3)
                                                                      development      of incentive      programs for
                                                                      landowners to protect sensitive and productive
                                                                      natural resources; and 4) support for statewide
                                                                      legislation to provide for the use of purchase
                                                                      and transfer of development rights (TDR). TDR
                                                                      permits landowners of special resources the
                                                                      mechanism to sell their development rights to
                                                                      another landowner located outside of a special
                                                                      resource     area    thereby     capturing      the
                                                                      d
                                                                        velopment value of the land without
                                                                       e
                                                                      converting it to another use. This stewardship
                                                                      should include special programs for the
                                                                      respons
                                                                              ible management of resources for
                                                                      economic use including agriculture, timber
                                                                      harvesting, fishing and fisheries, solar and
                                                                      wind access, and mineral extraction. The
                                                                      development guidelines in the Grand Traverse
                                                                      Bay Region Development Guidebook should be
                                                                      widely followed.
           A swan enjoys a leisurely swim.


           Natural Resources and the Environment                                 The Leelanau General Plan - Functional View
           Page 6-8









             Large and contiguous open spaces should                     single board, however representative and
         be recognized for their multi-functional values,                concerned.
         including wildlife habitats and rural vistas, and
         be afforded the same protection emphasis as                     Issue:
         the peninsula's more sensitive resources. This                     Balancing of long-term economic gain and
         is not to suggest no development should occur                   environmental protection concerns in county
         in these areas, but that it is more desirable that              and local go vernment policies and programs.
         it be designed to relate to, rather than against
         nature.                                                         Policy:          County and local policies and
                                                                                          programs       may be drafted
             The stewardship ethic should extend to the                                   toward ensuring environmental
         protection of the peninsula's air and water                                      protection . while encouraging
         resources,        through       continuous          air,                         appropriate      local     economic
         groundwater and surface water quality                                            development.
         monitoring, establishment of base line data and
         benchmarks, and long term management                            Action
         initiatives, including a peninsula-wide water                   Statement:       Educate county and local policy-
         quality protection program. This program                                         makers on the economics of
         should include specific provisions to assure the                                 public policies as they pertain to
         adequacy of existing and future private septic                                   protection of the environment.
         systems and wells and standards for
         underground storage tank operations and                         Issue:
         activities. All agencies with an interest in the                   Protection    of air and water quality.
         quality of these resources should be included
         in the development and implementation of the                    Policy:          County and local governments
         program.                                                                         should      initiate      proactive
                                                                                          measures to monitor and protect
             The General Plan recognizes that these and                                   air, groundwater, and surface
         other related natural resource protection                                        waters.
         initiatives would naturally occur within a
         framework of interjurisdictional coordination                   Action
         and cooperation to assure that the initiatives                  Statement:       Support efforts of federal, state,
         are peninsula-wide, that they achieve a                                          local, and private agencies to
         heightened level of consistency across the                                       monitor current air and water
         peninsula, and that permitting processes are                                     quality.
         streamlined among the various levels of
         government.                                                     Action
                                                                         Statement:       Use air and water quality data to
         NATURAL RESOURCES AND                                                            establish benchmark standards
         ENVIRONMENTAL PROTECTION                                                         for air and water quality in
         POLICIES AND ACTION STATEMENTS                                                   Leelanau County. Such
                                                                                          standards shall serve as a
             The     following      policies     and      action                          reference against which future
         statements are intended to establish the                                         data will be evaluated.
         blueprint of the General Plan's vision for
         sustaining the peninsula's natural resources. It
         should be noted here, as throughout, that the                   Action
         positions taken in the following policy and                     Statement:       Establish and maintain as part of
         action statements were supplied directly by the                                  its GIS system, a well log
         citizens of the county and not drawn up by a                                     database.



         The Leelanau General Plan - Functional View                                      Natural Resources and the Environment
                                                                                                                       Page 6-9









             Action                                                                     Action
             Statement:          Adopt and support a county-                            Statement:          Designate a person or county
                                 wide water quality strategy.                                               agency          to      keep         local
                                                                                                            governments and citizens
             Action                                                                                         informed and educated on
             Statement:          Assist local governments                 and                               environmental          issues facing
                                 lake      associations            in     the                               them. Educate          the public and
                                 development of watershed                                                   local officials       on ground and
                                 management plans as the first                                              surface water sensitivity and
                                 step to prioritizing efforts to                                            ways to prevent contamination.
                                 protect water quality of inland
                                 lakes and streams.                                     Action
                                                                                        Statement:          Initiate an annual review process
             Action                                                                                         for county-wide environmental
             Statement:          Provide from the county model                                              policies.
                                 o r d i n a n c e s       f o r     I o c a I
                                 governments to protect water                           Action
                                 quality and correct existing                           Statement:          Implement specific underground
                                 problems.                                                                  storage tank standards, as well
                                                                                                            as     a     county           "problem
             Action                                                                                         identification and               pullo 'ut"
             Statement:          Inspection and permitting of                                               program to remove unused
                                 new wells, septic systems,                                                 underground storage tanks.
                                 driveways,               a n d      o t h e r
                                 environmental alterations which                        Action
                                 require permits from county and                        Statement:          Enact a county-wide water
                                 local agencies should be linked                                            conservation program to
                                 'with approval of land use,                                                minimize use of aquifers.
                                 building, and zoning permits.
                                 The county should                   require            Action
                                 performance guarantees with                            Statement:          Support on-going research and
                                 permits issued to ensure that                                              public education for important
                                 environmental considerations are                                           air and water quality issues.
                                 n o t     n e g I e c t e d      d u r i n g
                                 development or construction.                           Action
                                 Wherever possible one stop                             Statement:          Ask public agencies (including
                                 p e r m i t t i n g     s h o u I d      be                                but not limited to county and
                                 established.                                                               local governments, the Soil
                                                                                                            Conservation Service, and IVISU
             Action                                                                                         Cooperative Extension Service)
             Statement:          Ensure coordination between                                                to alert parents, clubs, and
                                 county       and      local      agencies                                  schools of services and staff
                                 (building      department,          health                                 expertise available to assist in
                                 department, road commission,                                               education efforts about the
                                 zoning administrator, etc.) on                                             environment and measures to
                                 permitting and inspection of                                               prevent pollution.
                                 buildings, wells, septic systems,
                                 driveways, etc. especially on
                                 county-managed projects.




             Natural Resources and the Environment                                                     The Leelanau General Ran - Functional View
             Page 6- 10










          Issue:                                                                           areas which present severe
             On-site se wage disposal and po table wa ter.                                 limitations to on-site sewage
                                                                                           disposal, including wetlands,
          Policy:          The     county      should adopt                                floodplains, and steep slopes,
                           programs and regulations to                                     and utilize this information as
                           ensure safer and more effective                                 appropriate in the establishment
                           on-site sewage disposal and                                     and maintenance of septic
                           potable water.                                                  systems.


          Action                                                          Issue:
          Statement:       The County Health Department                      Protection of environmentally sensitive
                           should adopt a private septic                  areas, including wetlands, dunes, steep slopes,
                           tank ordinance modeled after                   shorelands, and wildlife corridors.
                           the Benzie County program to
                           prevent the ill effects of devel-              Policy:          County and local governments
                           opment in sensitive areas. The                                  should initiate proactive
                           ordinance should contain, at a                                  measures       to    protect      and
                           minimum, the following                                          enhance environmentally
                           provisions:                                                     sensitive areas.
                                    Minimum standards that                Action
                                    all septic systems must               Statement:       The county should use the
                                    meet during construction                               Leelanau Information System(an
                                    and operation.                                         evolving computerized GIS) to
                                    Periodic testing program.                              i d e n t i f y and      m a p     all
                                    Conditioning        property                           environmentally sensitive areas.
                                    transfers/house sales                                  The county should distribute the
                                    u p o n     a d e q u a t e                            information to various county
                                    functioning      of    septic                          agencies and local governments,
                                    systems.                                               and also make the information
                                                                                           available to interested parties
          Action                                                                           such     as developers and
          Statement:       The county should establish a                                   landowners at a reasonable
                           private well testing program to                                 cost.
                           establish        water       quality
                           conditions,       critical    trends,          Action
                           existing areas of poor water                   Statement:       The      county       and       local
                           quality, and areas for special                                  governments         should      work
                           study in light of future growth                                 together to establish overlay
                           and development.                                                z o n i n g    d i s t r i c t s f o r
                                                                                           environmentally sensitive areas.
          Action
          Statement:       The county should assist in the                Action
                           development of a program for                   Statement:       The county should encourage
                           water quality testing of inland                                 use of incentive programs to
                           lakes and streams to identify                                   protect        environmentally
                           water quality change and the                                    sensitive areas, as well as areas
                           source of any contaminants.                                     with significant open space
                                                                                           and/or scenic vistas, including
          Action                                                                           acquisition of fee simple or
          Statement:       The county should identify           all                        conservation easements by non-



          The Leelanau General Plan - Functional View                                      Natural Resources and the Environment
                                                                                                                       Page 6-11








                           profit organizations. It should            Action
                           place emphasis on "filling gaps"           Statement:      Assist local governments in
                           between existing preservation                              developing      regulations      to
                           holdings to increase ownership                             encourage clustering of new
                           of contiguous areas.                                       residential development in order
                                                                                      to minimize consumption of
           Action                                                                     open space and view amenities.
           Statement:      The county should           initiate
                           efforts to establish common                Action
                           protective      measures        for        Statement:      Promote active programs to
                           environmentally sensitive areas                            protect trees and to restore
                           that fall     within      multiple                         timberlands that have been
                           jurisdictions.                                             harvested.

           Action                                                     Action
           Statement:      The county should develop and              Statement:      Establish an information center
                           local governments should enact                             in   the    County       Planning
                           model flexible'site development                            Department for data on wildlife,
                           standards       to     minimize                            with key information mapped for
                           topographic changes, reduce the                            analysis and distribution among
                           extent of paved areas, and avoid                           local governments and the
                           environmentally sensitive areas                            public.
                           wherever possible.


           Issue:
              Open space protection, including scenic
           vistas/corridors.


           Policy:         The county should assist local
                           governments in protecting open
                           space, especially scenic vistas
                           and corridors, from loss through
                           land fragmentation and/or
                           development.
           Action
           Statement:      Identify     and    map large                                                                    k
                           contiguous open spaces and
                           scenic vistas/corridors in the
                           county,    for   distribution    to
                           various county departments and
                           local governments.


                                                                      Barrels of improperly disposed waste.













           Natural Resources and the Environment                                  The Leelanau General Plan - Functional View
           Page 6-12









                                                         Chapter 7
                                                  TRANSPORTATION



         INTRODUCTION                                              ISSUES


            Personal mobility has become a necessity.              Road Network
         The daily pattern of nearly everyones' life
         demands the ability to get from one location to             The Leelanau Peninsula faces a number of
         another, preferably in the shortest time                  crucial challenges in the provision of an
         possible. Whether it be for employment,                   efficient and safe transportation network. See
         recreation, schooling,       or shopping, a               Map 7-1. The most fundamental challenge is
         comprehensive transportation network for                  maintaining the extensive road network that is
         vehicles, pedestrians, and bicyclists has                 already in place and where necessary,
         become a fundamental necessity. Specialized               expanding the network to improve traffic flow,
         needs for bulk transport and air transportation           safety and efficiency. This challenge is greatly
         are also important. The need for personal                 affected by the peninsula's abundant natural
         mobility is made especially notable by the fact           resources, including its hillsides and lakes.
         that the majority of employed residents                   Rolling topography and large inland lakes acts
         commute outside of the county to their place              as a double edged sword. They provide
         of employment. Of equal significance is the               unmatched scenery and, at the same time,
         role of the tourism industry on the peninsula             have resulted in a somewhat circuitous
         and the additional demands for efficiency and             roadway network. As population increases, the
         safety it     places upon the          peninsula's        result is experienced in an increase in travel
         transportation network.

            This network has, and at least for the next
         few decades will likely continue to have, a
         direct impact upon the quality of life
         experienced by those who use it. The network
         directly impacts the efficiency of emergency
         services, available personal leisure time, the
         appropriateness of proposed future land use
         patterns,   and the safety of motorists,
         pedestrians, and bicyclists. It also affects the
         rate of peninsula growth and development, and
         much more. The Leelanau General Plan
         recognizes the critical role transportation plays,
         and recognizes that improvements to the
         network must be strategically planned in
         coordination with the achievement of other key
         components of peninsula life and its future.
                                                                                       e.T
         (See Working Paper #8 for more background                                                                    k
         information.)


         The majority of employed residents commute                                                4 -F
         outside of the county to their place of
         employment.                                               The County Road commission keeps.roads clear of snow.


         The Leelanau General Plan - Functional View                                                      Transportadon
                                                                                                             Page 7-1









                                  Map 7-1                                                      Map 7-2
                  ROAD CLASSIFICATION SYSTEM                                 1990 TRAFFIC ACCIDENT LOCATIONS



                                    0       5M(                                                    0      5MI



                                                                                               N

















                           REGIONAL         COUNTY                             TOTAL ACCIDENTS WITHIN ONE MILE RADIUS
                           ARTERIAL         PRIMARY
                                      COUNTY                                       <5          (5 5-9       0 >9
                                     LOCAL




                                 Map 7-3                                                       Map 7-4
                         AIRPLANE FACILITIES                                          RAILROAD FACILITIES



                                                                                                0       5MI
                                0      5MI



                                                                                               N
                             N















                                AIRPLANE                                                  RAILROAD          TERMINAL
                                LANDING FI ELD                                            TRACKS            POINT


           Transportadon                                                             The Leelanau General Plan - Funcdonal View
           Page 7-2









          times, automobile emissions, automobile and                    Level of Service
          truck operation costs, and congestion in some
          places.                                                           Adding      to    the     complexity      of     the
                                                                         transportation challenges is the fact that
                                                                         peninsula      transportation      is     staggeringly
          The most fundamental challenge is maintaining                  automobile dominant. Only limited
          the extensive road network that is already in                  opportunities currently exist for alternative
          place and where necessary, expanding the                       modes of transportation which might
          network to improve traffic flow, safety and                    otherwise reduce the demand upon the
          efficiency.                                                    peninsula's roadway network. Though the Bay
                                                                         Area Transit Authority operates a bus service,
                                                                         the service is provided to a very small portion
                                                                         of the peninsula. The peninsula offers only
            The existing roadway network is further                      limited road segments specifically designed to
          challenged by the fact that it operates within                 accommodate pedestrian and bicycle traffic.
          a relatively limited hierarchy of road types.                  This results in heightened road safety hazards
          While the network includes corridors classified                as pedestrians and bicyclists are forced to
          as regional arteries such as- M-22, M-72, and                  compete for space on a winding roadway
          M-204, the alignment and construction of                       network (with limited sight distances) with
          these arteries limit their ability to function                 motorists. Airplane facilities are limited and
          efficiently as regional arteries. The challenging              only scenic tourist rail service is available. See
          route location (with many 900 turning                          Maps 7-3 and 7-4.
          patterns) and many limited sight distances
          greatly reduces their potential to move traffic
          safely and efficiently at normal highway                       Though the peninsula's population increased
          speeds. As such, they provide less support for                 by approximately 18% between 1980 and
          the system than roads built to comparable                      1990, the same period saw an increase of
          standards elsewhere. On the other hand, they                   46% in traffic accidents.
          force slower speeds and provide opportunities
          for enjoying the unsurpassed beauty of the
          peninsula. The winding nature of the majority                     The resultant overall level of service along
          of the peninsula's county roads, resulting in                  roadways has declined over the years as the
          limited sight distances, presents numerous                     peninsula has experienced growth and
          safety hazards. Additional road use by                         development. The backbone of the peninsula's
          residents and visitors will likely result in more              roadway network, M-22 and M-72, are
          traffic accidents. For example, though the                     experiencing the worst levels of service.
          peninsula's       population        increased        by        Average daily traffic counts along M-22 near
          approximately 18% between 1980 and 1990,                       Traverse City approached nearly 22,000 in
          the same period saw an increase of 46% in                      1989. The poor road base of sections of these
          traffic accidents. See Map 7-2.                                roads makes maintenance costs particularly
                                                                         high. While many of the peninsula's roadways
             The often limited lane widths and, at places,               are experiencing very adequate levels of
          absence of adequate shoulders increase the                     service, those roads segments which have
          level of safety hazards still further. These                   traditionally witnessed the lowest traffic
          conditions present equally unsafe conditions                   counts are generally showing the greatest rise
          for pedestrians, bicyclists, and snowmobilers                  in traffic counts over the past ten years. The
          along the roadways. This is of particular                      ability of the County Road Commission to
          significance as the Leelanau Peninsula attracts                maintain or improve the level of service along
          some      of   the     rn ost   extensive        biking        the     network,       either    through       general
          opportunities and biking tours in Michigan.                    maintenance, incremental improvements, or



          The Leelanau General Plan - FunctFonal View                                                               Transportadon
                                                                                                                        Page 7-3








           major construction projects, is becoming                     1980 and 1990. See Figure 7-1. These
           increasingly difficult as available revenues are             increasing demands on the roadway network
           shrinking. The most needed projects in the                   associated with growth and development will
           peninsula (rebuilding some existing roads and                further challenge the network's level of
           solving a few congestion problems) are those                 service. See Map 7-5. Significant decreases in
           which     require      massive      amounts        of        service may be unavoidable in some places.
           expenditures. It is apparent that without a                  The resulting lower levels of service will be
           significant infusion of new revenue, such as                 reflected in increased congestion, extended
           increased local property taxes, new gasoline                 travel times, higher maintenance costs, higher
           taxes, new federal infrastructure monies, or                 rates of vehicular and non-vehicular accidents,
           cost    sharing     with    local     governments,           and longer emergency response times. Safety
           necessary improvement needs will remain                      hazards along the roadways will not be a result
           unmet.                                                       of increased traffic levels alone, but will also
                                                                        be a result of the rise in the number of
              It can be expected that transportation                    driveways, street intersections, and other new
           conditions will worsen on the peninsula if                   access points along major corridors resulting in
           current trends and conditions continue. Growth               hazardous turning patterns, stop and go traffic,
           and development will further increase the                    and congestion. Land acquisition costs for
           number of daily vehicles. Between 1984 and                   widening road right-of-ways to accommodate
           1990, there was an increase of nearly 4,400                  road improvements will be more costly due to
           vehicle registrations in the county. This is far             the high cost of land on the peninsula as
           in excess of the population growth. Vehicle                  market trends boost property values.
           miles traveled increased by 15% between



                               Figure 7-1                                                    Map 7-5
              VEHICLE REGISTRATION: 1984-1990                               AVERAGE DAILY TRAFFIC VOLUMES



                                        El State 1984-
                                           1990                                                 0       5MI

                                           county
                                                                                              N
                                           1984-1990


                   30.00%-z
                   25.00%-11//
                   20.00%-//

                   15.00%-

              co   10.00%-
              (D
              CL   5
                     00%
                   0.00%                                                            LOW K500)        MEDIUM (500-5000)
                                                                                         @ HIGH (>5000)
                                                                                  AVERAGE DAILY TRAFFIC VOLUME
                              Source: Department of State


        L

           Transportation                                                          The Leelanau General Plan - Functional View
           Page 7-4









                                                               of major improvements; 3) existing revenue
        Between 1984 and 1990, there was an                    generators and the revenues generated from
  0     increase of nearly 4,400 vehicle registrations         each source; and 4) the disparity between
        in the county. Vehicle miles traveled increased        transportation       revenues and costs.
        by 15% between 1980 and 1990.                          Consideration should be given to development
                                                               of new funding mechanisms such as tapping
                                                               tourism dollars, a county sales tax, state-wide
                                                               (or national) increases in gas and weight taxes,
           Despite these problems, the road network            and federal assistance with transportation
        on the peninsula serves to get people from one         improvements where federal facilities are
        place to another without the frequent delays           served.
        common in other more urban areas. However,
        without improvement, some problems will
        worsen dramatically in the next decade.                At the heart of the peninsula's transportation
                                                               planning and improvement efforts should be
                                                               creation of a long term road development and
        A FRAMEWORK FOR FUTURE POLICY                          multi-modal transportation plan.

           The transportation issues facing the
        peninsula today and projected for the future if
        current trends continue, dictate a far more               Implementing      a   hierarchically    based
        proactive stance to assure transportation              roadway network is critical to success. Each
        needs are met. It is the intent of the Leelanau        road segment must have a specific function
        General Plan to provide the guidance for a             within the entire network, whether it be to
        proactive    approach     to     comprehensive         provide higher speed access between villages
        transportation    planning    throughout      the      and other long distance destinations, access to
        peninsula. This proactive approach founded             neighborhood and shopping areas, or access to
        upon a number of key initiatives.                      individual residences and lots. These roads
                                                               must be coordinated according to their
           At   the    heart    of   the    peninsula's        function and tie-in to one another to provide
        transportation planning and improvement                safe and efficient movement of traffic.
        efforts should be creation of a long term road         Identification of a functional classification
        development and multi-modal transportation             system must then be followed by engineering
        plan. It should address the review, evaluation,        studies and capital improvement projects,
        and development of alternative funding                 thereby    assuring that the design and
        mechanisms upon which capital and service              construction of each road segment is capable
        improvements can be implemented. Without a             of functioning as intended. Associated with
        long-term   plan with clear improvement                the development of a coordinated peninsula-
        priorities, existing financial resources cannot        wide road network should be the development
        be wisely utilized. Likewise, the identification       of peninsula-wide standards for all new road
        of transportation needs and necessary capital          construction. These standards should address
        improvements is of little value if feasible and        provisions for adequate shoulders, safety
        practical funding mechanisms are not in place,         zones for bussing school children, and related
        or able to be implemented.                             safety elements.

           An important element of this initiative must           Special consideration in the development of
        be the provision of public information and             a peninsula-wide network and alternative
        education on the critical transportation issues        funding programs should be the identification
        facing the peninsula including: 1) costs of            of the most appropriate locations for all-
        maintenance of the network; 2) relative costs          weather roads, based upon the future land use



        The Leelanau General Plan - Functfonal View                                                  Transportadion
                                                                                                        Page 7-5








          map and policies of this General Plan. All-              uses should be designed to provide continuity
          weather roads should be designated as major              to existing and future ped estri a n/bi cycle
          arteries and not for use as local thoroughfares.         systems. The systems would accommodate
          This effort should be extended to consider               travel by the physically handicapped and, to
          necessary interfaces with (a) safe and efficient         the extent road right-of ways are used, should
          beltline(s) around the Traverse City area.               be afforded adequate shoulder and pavement
                                                                   construction.
             Directly tied to the identification of a
          functional classification network and the                   These efforts should result from a non-
          improvements which must be made to                       motorized element of the transportation plan
          implement the network is the need to establish           which provides the necessary planning,
          a land acquisition program. This program                 coordination, and direction in establishing and
          would     provide    for   the     identification,       maintaining this peninsula-wide system. The
          designation, and appropriate funding for land            plan should include, at a minimum, a needs
          acquisition. Identification of necessary land            assessment, a review of alternative system
          acquisitions through official evaluations, plans,        alignments and associated advantages and
          and maps will enable the county to assure                disadvantages, identification of the preferred
          proposed acquisitions are undeveloped prior to           system layout, and the necessary capital
          acquisition. This is especially important where          improvements, by year, cost, and anticipated
          funds are not immediately available for right-of-        funding source, to implement and maintain the
          way acquisition, and helps assure lower future           system.
          acquisition costs. Modification of local
          regulations would help accomplish this goal                 Minimizing demand upon the peninsula's
          where feasible.                                          vehicular network should also maximize the
                                                                   utility of the Bay Area Transit Authority.
            It is very desirable that all road improvement         BATA's current services and operations should
          projects should recognize the scenic character           be reviewed and evaluated to identify priority
          of the peninsula's roadway corridors and                 service areas and needs, the extent to which
          attempt to preserve the natural character                service needs are being met, and opportunities
          elements. Classification of some roads as                for improved and expanded service areas and
          "scenic" or as "natural beauty roads" should             daily schedules.        Increased operations
          be pursued based upon inventory data and                 efficiency and new and alternative funding
          long range plans.                                        mechanisms should also be explored.

            This General Plan proposes far more                       Preparation      of    the     non-motorized
          substantive efforts directed at establishing a           transportation plan, and the future operations
          stronger multi-modal transportation network on           of BATA and other potential transit systems
          the peninsula than has previously been                   should     consider      linkages between
          invested. This effort will minimize demands              neighborhoods providing affordable housing
          upon the peninsula's roadway network and                 opportunities      and     centers      providing
          improve safety. Programs to be established               employment to neighborhood residents.
          could include comprehensive peninsula-wide
          bicycle systems and improved pedestrian                     Multi-modal transportation planning should
          systems    in    villages   and    other     small       be expanded to include new opportunities for
          settlements. These systems should be planned             the transporting of goods. These expanded
          and designed to provide safe and functional              opportunities should be implemented only after
          linkages between existing villages and future            careful evaluation of applicable peninsula travel
          settlement areas, shopping areas, recreational           patterns including trip generation, origin-
          facilities and employment centers. New                   destination, and destination-location studies.
          residential, commercial, and industrial land             Investigations should be encouraged by the


          Transportation                                                      The Leelanau General Plan - Functional
          Page 7-6









        private sector into rail and/or ferry services for     of commercial air services in close proximity to
        commuters and tourists and opportunities for           the peninsula and protection of glide paths to
        a network of cooperative transport of goods.           and from existing airports.
        Employee     transit    programs,      including
        carpooling, should also be examined. Efforts              The development of consistent peninsula-
        should also be directed to assure the long term        wide private road regulations should not go
        continuation                                           unattended. Assuri   'ng adequate construction,
                                                               operation, and maintenance of these roads is
                                                               critical in protecting the safety and welfare of
                                                               peninsula residents and visitors and minimizing
                                                               the road maintenance burden of existing
                                                               residents.


                                                                  The Leelanau General Plan recognizes that
                                             71-
                                        N                      all of the transportation planning efforts within
                              A
                                                               the peninsula must occur under an umbrella of
               AM                                              strong interjurisdictional coordination. This
               Ran                  P - M- W,
                                                               coordinated peninsula-wide planning effort
                                          E-@,@ TO             among local municipalities, the County
                                              tv
                                                               Planning     Commission       and    Board     of
                                           KER
                                                               Commissioners,       the   IVIDOT,   the    Road
                                                               Commission, and the Grand Traverse Band of
                                                               Ottawa and Chippewa Indians must address
                  -USE
                                                               the need for a peninsula-wide functional
                                                               circulation network that meets the needs of all
               a,v
              U7.1% IV 14 i N
                                                               users. The effort must include regular
                                                               communication and joint planning with the
               LOM M
                                                               Grand Traverse Band and IVIDOT to assure
                            &                                  adequate     transportation    and   safety in
                                                               association with casino activities and other
                                                               conditions along M-22. Coordination of all
                                                               capital improvements, and the scheduling
                                                               thereof, should be pursued to better assure the
                                                               acquisition of needed rights-of-way and
                                                               minimize network disruptions.



                                                               TRANSPORTATION POLICIES AND
        IRST S1
                                                               ACTION STATEMENTS


                                                                  Thefollowing policiesand action statements
                                                               are intended to set up a blueprint for the
                                                               General Plan's recommendations for the
                                                          -4,  peninsula's     transportation    system.     All
                                                           2`1 statements are intended as proposals. How
                                                          4    ever strongly desired, they are not meant as
                                                               directives.



        Parking problems in Leland have led to an assortment of
        regulations designed to relieve congestion.


        The Leelanau General Plan - Functional View                                                 Transportation
                                                                                                        Page 7- 7







            Issue:                                                          Policy:           The Michigan Department of
                Long term road development andmultimodal                                      Transportation (MDOT) and the
            transportation plan.                                                              Leelanau         County         Road
                                                                                              Commission (LCRC) should
            Policy:          The County Road Commission                                       promote construction of
                             will need to develop a long term                                 shoulders on all new roads on
                             road development and multi-                                      the Leelanau Peninsula.
                             modal       transportation        plan
                             compatible with the Leelanau                   Action
                             General Plan.                                  Statement:        IVIDOT and LCRC should commit
            Action                                                                            to construction specifications
            Statement:       The County Road Commission                                       including road shoulders of
                             should prepare a long term road                                  a d e q u a t e      w i d t h    t o
                             development and multimodal                                       accommodate          bicycle and
                             transportation          plan       and                           pedestrian traffic.
                             financing      method       that      is
                             annually updated and integrated                Action
                             with the county capital                        Statement:        In all instances, IVIDOT and
                             improvement program.                                             LCRC should require
                                                                                              construction of shoulders with
            Action                                                                            adequate width to assure        '  the
            Statement:       The County      Road Commission                                  long life of the 'used' roadway.
                             should work with the County
                             Planning Department, County                    Action
                             Planning Commission and local                  Statement:        IVIDOT and LCRC should work to
                             governments in the preparation                                   provide     "safety zones* for
                             a n d    u p d a t i n g    o f   i t s                          school bus-stop areas which will
                             *transportation plan and should                                  allow the bus to pull completely
                             strive to make it compatible                                     off the main roadway when
                             with the Leelanau General Plan.                                  picking-up or dropping-off
                                                                                              students.
            Action
            Statement:       Special     attention should be                Issue:
                             focused     in the transportation                  "Class A N (all-weather) road network
                             plan on meeting non-motorized                       e Identification of proposed network.
                             needs,      especially for an                       *Funding for the all-weather road
                             integrated network of bicycle                          network.
                             lanes and of a pedestrian
                             friendly sidewalk system in                    Policy:           The Leelanau County Road
                             villages and other pedestrian                                    Commission, with the
                             areas.                                                           assistance of the County Board
                                                                                              of Commissioners and all other
            Issue:                                                                            municipal governments, should
               Road shoulders                                                                 seek alternative funding sources
                ï¿½ Inclusion        in future        construction                              to create a network of "Class
                    programs.                                                                 A" (all-weather) roads on the
                ï¿½ Safety of       both motorized and non-                                     Leelanau Peninsula.
                    motorized traffic.






            Transporta6on                                                                The Leelanau General Plan - Funcdonal View
            Page 7-8









          Action                                                                           scheduled bus route along key
          Statement:       Consider the "Class A " as a                                    corridors.
                           peninsula-wide road network,
                           not a local road network.
                                                                         Action
          Action                                                         Statement:        Conduct a feasibility study to
          Statement:       Identify    businesses       needing                            determine necessity of bus
                           00ass A N roads (i.e. fruit proc-                               routes.
                           essors, industries, etc.) for their
                           livelihood as a basis for "Class              Action
                           A 0 designation and future road               Statement:        Investigate other alternative
                           improvements.                                                   transportation methods.
                                                                         Action
          Action                                                         Statement:        Join with local governments in
          Statement:       Study traffic patterns to deter-                                supporting the continued fiscally
                           mine the most appropriate lo-                                   sound operations of the Bay
                           cation for the all-weather road                                 Area Transportation Authority
                           network.                                                        as the primary mechanism for
                                                                                           meeting the needs of transit
          Action                                                                           dependent individuals on the
          Statement:       Work with the Grand         Traverse                            peninsula.
                           County Road Commission, the
                           City of Traverse City, TC-                    Action
                           TALUS,      and the         Michigan          Statement:        At the request of the Board of
                           Department of Transportation to                                 Directors of the Bay Area
                           review and establish the need                                   Transportation          Authority,
                           for a beltline route around                                     consider placing on the ballot a
                           Traverse      City to       minimize                            reasonable proposal for a millage
                           summer       traffic     congestion,                            to support transit operations as
                           allow farm vehicles to travel                                   may be necessary.
                           around (rather than through) the
                           city, and to route through traffic            Policy:           Work with the Grand Traverse
                           to avoid time delay and safety                                  Band of Ottawa and Chippewa
                           hazards       associated         with                           Indians and other developments
                           unnecessary trips through the                                   to fund safety improvements
                           center of the city.                                             along the Traverse City -
                                                                                           Northport Corridor.

          Issue:                                                         Action
             The movement of people and goods along                      Statement:        Determine how to best promote
          key corridors and meeting transit needs.                                         a coordinated transportation
               ï¿½ Possible impacts ofmass-transportation                                    effort between county
                  effort.                                                                  government and the Grand
               ï¿½ Benefits of working with other gov-                                       Traverse Band.
                  ernments.
                                                                         Action
          Policy:          County government should work                 Statement:        Investigate ways to most
                           w i t h    t h e    B a y     A r e a                           efficiently move casino-related
                           Transportation Authority (BATA)                                 traffic throughout the Traverse
                           to    establish      a     regularly                            City - Northport corridor.



          The Leelanau General Plan - Funcdonal View                                                               Transporta
                                                                                                                        Page 7-9








           Action                                                    Policy:         The Leelanau County Road
           Statement:      Identify traffic hazards along the                        Commission       and all local
                           corridor, then prepare a program                          municipalities    should      work
                           to   correct the identified                               toward completion of a common
                           deficiencies.                                             road network.


           Issue:                                                    Action
              County road network funding:                           Statement:      The Leelanau County Road
               ï¿½ Low return on tourism dollars spent in                              Commission, in cooperation with
                  the county versus tourism impact on                                affected government agencies,
                  the county road network.                                           should inventory the existing
               ï¿½ Current funding methods tied primarily                              road network for the purpose of
                  to gas and weight tax.                                             identifying needed road
                                                                                     construction projects.
           Policy:         Leelanau County governments               Action
                           should work together to                   Statement:      The Leelanau County Road
                           supplement County Road                                    Commission, in cooperation with
                           Commission       funding      with                        affected government agencies,
                           tourism dollars.                                          should officially map anticipated
           Action                                                                    new roads.
           Statement:      The County Road Commission                Action
                           should investigate the feasibility        Statement:      Through a coordinated capital
                           of a county sales tax to                                  improvements program, local
                           generate a continuous funding                             governments should work
                           source.                                                   cooperatively with the road
           Action                                                                    commission to secure necessary
           Statement:      Whenever possible, Leelanau                               right-of-way associated with
                           County should coordinate road                             anticipated road locations.
                           improvement projects with
                           neighboring counties.                     Action
                                                                     Statement:      Special emphasis should be
           Action                                                                    placed on siting the Bugai-Mann
           Statement:      The Leelanau County Road                                  Road corridor and coordinating
                           Commission should advocate a                              the effort with the TC-TALUS
                           statewide increase in the gas                             Traverse City Beltline route
                           and weight tax to supplement                              location.
                           funding for road commission
                           operations.                               Issue:
                                                                        Protect scenic quality of key state and
           Action                                                    county roads.
           Statement:      Leelanau County governments
                           should seek federal financial             Policy:         A special effort should be made
                           supplements for maintenance of                            to protect the scenic character
                           roads within the vicinity of the                          of key state and county roads
                           Sleeping Bear Dunes National                              when      necessary          road
                           Lakeshore.                                                improvements are made.

           Issug:                                                    Action
             Secure land necessary for future roads.                 Statement:      An inventory of the scenic
                                                                                     character of state and county


           Transportadon                                                         The Leelanau General Plan - Funcdonal View
           Page 7- 10









                           roads should be performed and                Action
                           segments with special scenic                 Statement:      Execute an origin-destination
                           qualities identified.                                        study using employee location
                                                                                        lists from employers.
         Action
         Statement:        Scenic highway and/or natural                Action
                           beauty roads designation should              Statement:      initiate a transit management
                           be initiated with the support of                             program       with employers,
                           the County Road Commission on                                promoting carpooling and other
                           key non-arterial roads or road                               p r o g r a m s   through        the
                           segments.                                                    workplace.
         Action
         Statement:        Once designated as a scenic                  Action
                           highway and/or natural beauty                Statement:      With     assistance      from     the
                           road, future road improvements                               Northwest Michigan Council of
                           should respect and/or enhance                                Governments, develop a formal
                           the scenic character of the road                             carpooling/vanpooling program,
                           and immediate environs.                                      with matching services and
                                                                                        commuter       lots for vehicle
         Issue:                                                                         storage.
            Access to and through- the peninsula is
         limited and transport costs are high.                          Action
                                                                        Statement:      Work with the Northwest
         Policy:           Focus on multi-modal       transport                         Michigan Regional Airport to
                           opportunities to reduce the cost                             continue commercial air services
                           of transporting goods and the                                in   close     proximity to the
                           burden on the road network.                                  peninsula.

         Action                                                         Action
         Statement:        Study     the    phenomena         of        Statement:      Encourage        private      sector
                           Leelanau       County        as     a                        investigation of the use of a
                           'destination location' and         its                       private sector rail service and/or
                           influence on commercial and                                  tourist ferry for either commuter
                           industrial development.                                      or tourist functions.















 is



         The Leelanau General Plan - Funcdonal View                                                              Transportado;
                                                                                                                    Page 7-11











                                                       MEMI


                                             20T!

                                                                 mll


                                                                                                                                  cc





                                                                              7



                                                                                                                                   c


            The fo-er Sprague-Pruttsman locatfon in Suttons Bay.
































            Transportatfon                                                             The Leelanau General Plan - Funcdonal View
            Page 7-12









                                                           Chapter 8
                                  PUBLIC FACILITIES AND PHYSICAL SERVICES



          INTRODUCTION                                               and services on the peninsula within this
                                                                     context.
             Within the context of the Leelanau General
          Plan, public facilities and physical services are
          generally limited to the areas of recreation,              Yet, the master plans of local communities
          libraries, cemeteries, sanitary sewer, potable             include little in the way of how, under what
          water, storm sewer, administrative offices, and            conditions,    and at what rate future
          fire and police protection. These services differ          infrastructure expansions may take place.
          in character from the many other so called
          "human" services also provided on the
          peninsula by governmental agencies. Public                    Decisions on whether and if so where to
          facilities and physical services are generally             place/offer new public facilities and physical
          very tangible services based upon land*                    services is one where this plan can have a very
          resources, capital, and/or infrastructure, such            significant impact. This is true for decisions at
          as a playground, fire truck, or stormwater                 both the local level as well as on the county
          retention pond. Human services have a                      level. Where public sewer lines, water mains,
          different service delivery system and generally            schools, and government buildings are placed
          address personal and/or family assistance,                 will have a lot to do with the nature and type
          such as employment and senior citizen                      of future growth that occurs. It thus becomes
          programs.                                                  vital that the planning and implementation of
                                                                     future public facilities and physical services be
                                                                     done within a generally accepted framework
          Decisions   on whether and if so where to                  based on intergovernmental coordination and
          placeloffer new public facilities and physical             open communication. (See working Paper #8
          services is one where this plan can have a very            for more background information.)
          significant impact.


                                                                     ISSUES


             The provision of public facilities and                  Sewage Disposal
          physical services to people and property
          directly impacts public health, safety, and                   Nearly the entire peninsula relies on
          welfare and, as a result, the quality of life              individual private on-site systems for sewage
          across the peninsula. Provision of public                  disposal. Except for parts of Elmwood
          facilities and physical services by municipalities         Township, the Village of Suttons Bay, portions
          (including the county) on the peninsula is not             of Leland Township, Sugar Loaf, and the
          extensive. See Maps 8-1 through 8-3. Yet, the              private Homestead resort, septic systems
          desire to possibly expand such services must               prevail across the county. See Map 8-2. The
          be given careful consideration. Improperly                 oldest of the systems was constructed in the
          planned, the expansion of public facilities and            1930's in Suttons Bay and it has undergone
          physical services can contribute to urban                  numerous improvements and expansions over
          sprawl and uncontrolled growth - conditions                the years. Leland Township's system was
          which are already present and which have                   completed in 1993. All of the systems were
          been    identified    as   destructive    to the           installed to provide a safe level of sewage
          peninsula's future. The Leelanau General Plan              disposal that was not otherwise available
          addresses the future scope of public facilities            through on-site septic systems.


          The Leelanau General Plan - Funcfional View                                 Public Facilities and Physical Services
                                                                                                               Page a- I











                                                                                                                      Table 8-1
                                                                           MUNICIPAL PUBLIC FACILITIES AND SERVICES                                                                                                                               0

                                                                                                                                                  Glen                                                                        Suttong   Village: of
                                              Bingham Centenriiie Cle%eland Elmv4od Empire                               Village of               Arbor   Kasson   Leelanau TeJarvi Villageof Solon                           Bay            Suttow
                                                        Tup,     Tylp@                TVIP.           TwP.     TM).               Empire          Twp.                       7.-@          Twp. N-thport _.I=                 Tw@            Bay
            RECREATION
            SERVICES                                    YES      YES                  YES             YES      NO                 YES             YES     NO                 YES YES                       Tw                 YESM           YES
                                                                                                                                                                                                                              ...............
                                                                                                                                                                             5             9               2                  1              5
              of Facilities                             2             1               1               2                           2               3
            Acreage Range                               less                                                                                      1 or
                                                                                      2               3-15                        4-9             less                       1/2-72 1-100                  2-3                20             5-30
                                                        than 1        1
                                                                                                               ...............
                                                                                      2               is                          12              1-M                        124           111             5                  20
            Total Acreage                               less

                                                                                                               ..............
            General Conditions                          G        G                    G               G                           G               G                          G             G               G                  G2M            G
            Sports Fielids                                                                            x                           x                       x                  x             x                                  xEM            x
            Tennis Courts                                                                             x                                                   x                                x               x                  x              x
            Basketball Courts                                                                                                                     x       x                                x               x                  x              x
            Playgrounds                                 x                                             x        . . . . . . .. . . . . . . . . . . . . . . . . . . .. . . . . . . . . . . .xxxxx            x                  x              x
                                                                                                                                  x                       x                  x
            Tot Lots                                                                                           .....                                                                                       x                  x              x
            Picniciting                                 x        x                    x               x                                                   x                  x             x               x                  x
                                                                                                                                                                                                                                             x
                                                                                                                                                                                                                                             x
            TraiWX-s1tiing                                                                                                        x                                                        x
                                                                                                               .............

                                                                                                                                                  x
            BeachlSwunming                                                                                                        x                                                        x               x                                 x
                                                                                                                                                          ...............
                                                                                                               ..........
            Boat Ramp                                            x                    x                                                                                                    x               x                  x
                                                                                                               ...........                                                                                                    ................
                                                                                                               ... ...........
                                                                                                                                                                                                                                             135
                                                                                                                                                                                           47
            Marina/* of SUpr                                                                          Bouyo                                               . ........                                       119
                                                                                                      . ...............                                   ..........
                                                                                                                                                                                                                                             x
            SleddinglSkating                                                                                                                                                               x
            LIBRARY
            SERVICES                          NO (1)             NO                   NO              NO       NO (1)             YES             NO (1)  NO (1)             YES           YES             NO                 NO NO (1)      YES
                                                                                                                                                                                              .................... ............... ...............

                                                                                                                                                                                                                              ... ........
            #of Facilities                    ........                                                                            2                                                        1               - . -
                                              -......                                                                                  . - le             .:... e                             ... .          ....             ................
                                              -X XX.1X-.%.1.'..'1.e@                                           .............                      ..... ...                                                                   ...........
                                                                                                                                                                                                                              . ..........
                                                                                           ..........                                                                                                                                        lie
                                                                                                                                                                                                                                             9&
                                                                                                                                                                             1969          1976
                                                                                                                                                          .............                                                       ... ............
            Year Constructed                                                                                                      1992                    -@: -.1.                                                            .
                                              ...............                             .. ......                                               . .....
                                                                                                                                                          ... ..........
                                                                                                                                                  . ....... .............
                                                                                                                                  16.000 ....... .1...,                      25,600        24,000
            ï¿½ Of vol"m-
                                                                                                                                                                                                                                             lZ331
                                              ...........                             ...   ......... x
                                                                                                                                       ............... ...........
                                              ..........
            ï¿½ of Cardholders                                                                                                      Z432                                       Z100          Z000
                                                                                                                                                                                                                                             Z6"
                                                                           .... .......
                                              ...............
            ï¿½ 1"0 Circulatica
                                                                                                                                                                                                             .......... . .
                                                                                                                                                                                                             ........ ..
                                                                                                                                                                             Z,535         000                                                    5
                                                                                                                                                                                                             ............ .
                                                                          .. ...                                                  9,040                                                       ........       ......... ..
                                                                                                                                                          .....                               ...................
            CEMETERY
            FACILITIES                                  YES      NO                   YES             NO       YES                NO              NO      YES                YES           YES             NO                 YES YES        NO
                                                                                                                                                                                              .................
                                                                                                                                                                                              ............. .. ....
            0 of Facilities                             1                             3
                                                                                                                                                                             2             2  ..........   -......
            SANITARY
            SEWER                                       NO       NO                   NO              YES      NO                 NO              NO      NO                 NO            YES             NO                 NO NO          YES
                                                           .... ......
                                                                                                                                                                                                           ........ ...
                                                                 ...........
                                                        .. . ..       ....                                                                                                                                 .....              ............
                                                                 . . ...                                                                                  .. ..                                            . .....
                                                                                                                                                                                           1993
                                                                                                               ................                                                                            . .... ...                        1934
                                                                                                      1976
                                                                                                                                                                . .....                                                       . ......
                                                                                                                                                                                              ...... .......... ..... . .
            Year Installed
                                                                                                                                                                   . ..........
            POTABLE WATER                               NO       NO                   NO              YES      NO                 YES             NO      NO                 NO            NO              YES                NO NO          YES
                                                                                                                                                                                                           -S
                                                                                                                                                                                                           ly3o                              1909
            Year installed                                                                            1970                        1$95                          . ...............
            STORM SEWER                                 NO       NO                   NO              NO       NO                 YES             YES     NO                 NO            NO              YES                NO NO          YES
                                                                                                                                                                   ... ........
                                                                                                                                                          .. ......... ... .
                                                        .......          ................... .............. X.....
                                                                                                      .... . . .... .
                                              .................                                                                                                                                            1930
                                                                                                                                                                             .........
            Year Installed (or to                                                                                                                                               .. . .. .  -----
                                              ...........                                                                                                 . ....
                                                                                                                                  1953
                                                                          . . ......  NX.: . I        .....
                                                        ....              . ... .     @_,. ..::       . ...:..... ...............                         .....
            be installed)                                                             .. ...........                                                                                                       'S
                                                                                                                                                                                ....... .
                                                                                                                                                                                ..........
                                                                                                                                                                                                           40
                                                                                                                                                                   ................ . ........
                                                                                                                                                              . .........
                                                                                                                                                                                .........                    ............... ...............
                                                                                           - - - - ------ --   .......
            FIREPROTECTION                              YES      YES                  YES             YES      YES                YES             YES     YES                YES           YES             YES                YES YES        YES
            Firafli@cy
            Station                                     x                                             x                           x               x                          x             x               x                  X              x
            OTHER SERVICES                              NO       NO                   YES             YES      YES                YES             YES     YES                YES           NO              YES                NO NO          YES
            Municipal Offices
                                                                                                                                                                             x                             x                                 x
                                                                                      x               x        x                  x               x       x
            Center
            Maintenancerjarase
                                                                                                                                                                                                                              . ....... .
                                              . ..........
                                                                                                                                                                                           --- mm@
            Facility                                                                                                              x                                                                        x                                 x
                                              ......... ...
                                                                                                                                                                             X
                                              ...............
            Airport                                                                                            x I
        (1) Empire TounshiA CRen Arbor Township, and Kasson Tounship contribute funds to the Empire UrAzT, Bingham To-ship and Suttons Bay Towuhip, contribute funds to the
                                                        2
                                              11 1
                                                        less


































































            Sluttons Bay LArary.
        G = Good                                                                                                                                                                                                                                  0

                   Public Facilides and Physical Services                                                                                                     7he Leelanau General Plan - Funcdonal
                   Page 8-2











                                  Map 8-1                                                       Map 8-2
                         COUNTY FACILITIES                                   PUBLIC WATER AND SEWER SYSTEMS


                                  0      5MI



                                                                                                 0       5MI

                               N



                                                                                               N








                                                                                                 -cv


                               *A
                                                                                                              A


                   0  COUNTY               COUNTY PARK
                      COURTHOUSE                                               SANITARY      0  STORM        A DRINKING
                   0  SATELLITE        A COUNTY ROAD                           SEWER            SEWER          WATER
                      COUNTY OFFICE        COMMISSION




                                  Map 8-3                                    These systems permit higher development
                       MUNICIPAL FACILITIES                              densities than on-site septic systems. To the
                                  r_"rn_r_1                              extent additional capacity exists within these
                                  0        5M1                           systems today, there is considerable potential
                                                                         to permit the expansion of the service area.
                                                                         Public sewers can contribute to a more
                       N                                                 compact development pattern or if poorly
                                                                         planned, to greater sprawl. Thus, how future
                                                                         growth is managed where public sewer service
                                                                         is present, is a critical quality of life
                                                                         consideration. Though Leland Township's
                                                                         excess sewer capacity is somewhat limited,
                                                                         the Village of Suttons Bay and Elmwood
                                                                         Township have considerable excess capacity.
                                                                         The Village of Suttons Bay excess capacity
                                                                         alone could accommodate a doubling of its
                                                                         population. This affords an opportunity for the
                                                                         master plans of these communities to project
                                0                                        the way in which, under what conditions, and
              A                                                          at what rate future infrastructure expansions
                                                                         may take place.

            A  VILLAGE            TOWNSHIP        MUNICIPAL
               HALL               HALL            AIRPORT



          The Leelanau General Plan - Functional View                                        Public Facifides and Physical Services
                                                                                                                        Page 8-3








               The resolution of these issues in the above               stormwater management beyond storm pipes
            communities and any others with expanded                     and drains along sections of main roads. The
            public facilities in the future may have                     village also provides a sedimentation basin.
            peninsula-wide implications due to impacts on
            traffic levels, tourism, and other growth                        Stormwater runoff quantities increase as
            stimulating activities.                                      vegetative cover is removed and buildings,
                                                                         roads     and     parking      lots   are     created.
                                                                         Sedimentation and water pollutants also
            Water Supply                                                 increase with stormwater, further highlighting
                                                                         the need for adequate runoff quality control.
               As with on-site sewage disposal systems,                  The impervious surfaces associated with future
            nearly the entire peninsula relies on individual             development will place increased demands
            private wells for potable water. The only                    upon existing stormwater infrastructure and
            municipalities to provide public water systems               may create flood conditions in those areas
            are Elmwood Township and the peninsula's                     where such infrastructure does not exist.
            three Villages. The oldest of the systems was                Current local plans and ordinances need to
            constructed in the 1890's in the Village of                  stress the importance of adequate stormwater
            Empire and it has undergone numerous                         management, both on a site specific scale
            improvements and expansions over the years.                  or across the whole municipality. Despite the
            Like the public sewer systems, these public                  porous (well drained) soils that cover much of
            water    systems       have    permitted       higher        the peninsula, stormwater management will
            development densities and a more compact                     become an issue of greater importance as
            development form. Like the issues facing those               growth continues.
            municipalities with public sewer systems, the
            same growth management issues apply. The                                           Map 8-4
            available excess capacity of these water                           FIRE   EMERGENCY SERVICE AREAS
            systems should be managed in view of the                                            7_@
            resulting impiications upon the local growth                                       0        5MI
            rates and development patterns. The master
            plans of these communities can provide
            guidance in the way of how, under what
            conditions, and at what rate water system
            expansions should take place.


            Stormwater Management

               Stormwater management was traditionally
            geared toward minimizing flood conditions and
            the resultant damage to and/or loss of life and
            property. It has, in more recent years, been
            expanded to place equal emphasis on
            controlling the quality of stormwater runoff
            before it is discharged into watercourses in
            order to protect them from sedimentation and                           CEDAR                   LEELANAU TWP.
            water-born pollutants.                                                 FIRE DEPT.         F@   FIRE DEPT.
                                                                                   ELMWOOD TWP.            LELAND TWP.
                                                                                   FIRE DEPT.         Im   FIRE DEPT.
               As important as stormwater management                               EMPIRE                  SUTTONS BAY-
            is, only one of the peninsula municipalities, the                      FIRE DEPT.              BINGHAM F.D.
            Village   of    Suttons     Bay,     provides      for                 GLEN ARBOR              FIRE
                                                                                   FIRE DEPT.              STATION



            Public Facilities and Physical Services                                   The Leelanau General Plan - Functional View
            Page 8-4









         Emergency Services                                       have ratings of 7. New development will
                                                                  increase demands for improved emergency
            While emergency services are taken for                services.
         granted in more urbanized areas, there is often
         increased awareness of the presence or
         absence of emergency services in rural areas             The vast majority of the peninsula has an
         such as the Leelanau Peninsula. Emergency                Insurance Service Organization rating of 9
         services take on a special importance on the             (with 10 considered the lowest rating).
         peninsula where there are few emergency
         medical facilities and considerable distances to
         travel. Fire emergency services are comprised              All police services are provided by the
         of seven volunteer fire departments throughout           Leelanau County Sheriff's Department except
         the peninsula. See Map 8-4. As a result of the           for part-time summer officers in Suttons Bay
         all-volunteer fire departments and the long              and Northport, and the Grand Traverse Band
         distances between fire stations, the vast                Police Department within the reservation areas.
         majority of the peninsula has an Insurance               The Sheriff's Department provides a wide
         Service Organization rating of 9 (with 10                scope of services including jail administration,
         considered the lowest rating). Exceptions                court officers, services of process for the
         include the Townships of Suttons Bay, Leland,            courts, marine patrol, animal control, and fire
         and Elmwood, which have ratings of 8, the                and rescue dispatch. Increases in population,
         Village of Empire with a rating of 8, and the            tourism and rising crime rates in northwest
         Villages of Suttons Bay and Northport, which             Michigan will result in increased pressure for
                                                                  additional police services and improved police
                                                                  techniques and methods.
                             Map 8-5
                    RECREATION FACILITIES
                                                                  Administrative Facilities


                             0      5MI                             Administrative facilities throughout the
                                                                  peninsula are comparatively limited. Only two
                                                                  thirds of the local municipalities have formal
                                                                  administrative offices and many of these
                          N                                       offices have limited business hours. The only
                                                                  other local administrative facilities are the
                                                                  maintenance and/or garage facilities of the
                                                                  peninsula's three village municipalities. The
                                                                  county operates one principal administrative
                                                                  facility, the courthouse facility in Leland, the
                                                                  county seat. This facility houses the offices of
                                                                  the prosecuting attorney, treasurer, clerk,
                                                                  accounting, probate, register of deeds, district
                                                                  court and County Board of Commissioners, as
                                  A                               well as a law library, court rooms, and several
                                                                  other offices. The county has an annex
                                                                  building for the planning and equalization
                                                                  departments and rents additional satellite
             SLEEPING BEAR DUNES ALVILLAGE                        facilities in Suttons Bay and in Lake Leelanau.
             NATIONAL LAKESHORE IWPARK         COUNTY
            ILEELANAU           &TOWNSHIP      PARK               The Road Commission's administrative offices
             STATE PARK           PARK                            are located in Suttons Bay as well. A review is
                                                                  underway to determine what, if any changes



         The Leelanau General Plan - Funcdonal View                               Public Facilities and Physical Services
                                                                                                          Page 8-5








           should be made in county facilities and when               centers. No trail system exists between the
           and how they should be financed, if needed.                parks to facilitate non-road park to park
                                                                      access. Current settlement patterns make it
                                                                      economically difficult to expand recreation
           The current local recreational facilities on the           services    in   outlying     area,   and     most
           peninsula are very limited in both scope of                municipalities are not currently addressing this
           recreation    opportunities and ease             of        in recreation and land use plans.
           accessibility by the public.

                                                                      Library Facilities
           Recreation Facilities
                                                                         Four of the peninsula municipalities operate
             The present total recreational acreage, not              library facilities including the Villages of Empire
           including state and federal facilities, exceeds            and Suttons Bay and the Townships of
           the normally accepted standard of 10 acres per             Leelanau and       Leland. Though generally
           1 000 persons. Available recreational activities           accepted 'volumes of books per capita'
           include birding, biking, boating, fishing, hiking,         standards are met, access to the library
           hunting, picnicking, cross-country skiing,                 facilities is limited. While access is convenient
           snowmobiling, snowshoeing, swimming, and                   for those living within the village areas where
           many others. Accessibility is a problem in that            the facilities are located, access to such
           many facilities are distance from population               services is far more limited to the vast majority
















                       -A




                                                                                                                 T"i


                                                                                                                       N




                                                                  A
                                                                                                                         Z



                                                                         014-12


           Volunteer firefighters battle a house fire in Leland.


           Public Facilities and Physical Services                               The Leelanau General Plan - Functional View
           Page 8-6









          of the peninsula area. Again, the current                      A FRAMEWORK FOR FUTURE POLICY
          settlement pattern makes it economically
          difficult to expand service to these outlying                     Public facilities and physical services will
          areas.                                                         play a major role in shaping the future
                                                                         character of the peninsula and its overall
                                                                         quality of life. The Leelanau General Plan
                                                                         recognizes the intrinsic relationship between
          The General Plan calls for the establishment of                the peninsula's future and the programs within
          a program for the expansion and improvement                    which public facilities and physical services are
          of public facilities and physical services on the              to be provided and/or delivered. To this end,
          peninsula in a manner which discourages                        the plan proposes a public facilities and
          sprawl and promotes compact settlement                         physical services program to squarely address
          pattems.                                                       these issues. The plan calls for the
                                                                         establishment of a program for the expansion
                                                                         and improvement of public facilities and
                                                                         physical services in a manner which
          Solid Waste                                                    discourages sprawl and promotes compact
                                                                         settlement patterns. This may be accomplished
              Since 1983, all of the solid waste collected               in part through specific public services districts
          in Leelanau County has been disposed of at                     (see also Part One, Chapter 5 and Chapter 6 of
          Glen's Sanitary Landfill in southern Kasson                    this section).
          Township. Glen's Sanitary Landfill, the only
          landfill facility on the peninsula, has an                        Use of service districts underscores the
          approximate life expectancy of at least 45                     necessity for interjurisdictional coordination
          years. The peninsula is presently serviced by                  and the plan calls for such cooperation as part
          three solid waste haulers. Due in large part to                of this public facilities and physical services
          the disbursed population in the Leelanau                       program. Critical considerations in this regard
          Peninsula and surrounding counties, Glen's                     include the identification of service district
          Sanitary Landfill is dependent upon regional                   boundaries,     the    coordination     of capital
          users of its facility and receives waste from                  improvements among municipalities, and the
          Leelanau,      Benzie,     and-   Grand      Traverse          phasing of capital improvements to the benefit
          Counties. If any one of these waste streams                    of both the local municipalities and the
          was discontinued, Glen's Sanitary Landfill                     peninsula as a whole.
          could cease operation and waste collection
          costs on the peninsula could easily double due                    Closely linked to the interjurisdictional
          to increased hauling distances. The county will                treatment of future peninsula public facilities
          need to continue a strong solid waste                          and physical services is the establishment of
          management program to ensure licensed                          uniform minimum service level standards for all
          facilities are available to meet its needs. It will            future new developments. *Level of service'
          also be important to increase emphasis on                      refers to the level at which a public service is
          11 reduce, reuse, recycle" and related education               operating, or the "adequacy" of the service. By
          programs.                                                      incorporating     minimum level of service
                                                                         standards into local regulations and plans,
              Also at issue on the peninsula will be the                 municipalities will be able to both monitor the
          growing       need      to    expand       recycling,          quality of services delivered as well as assure
          composting, and household waste collection                     new development does not occur unless the
          programs as community support grows and                        necessary public services to support the
          yard wastes are banned from landfill disposal                  proposed development are in place (or in place
          in 1995. These programs will require additional                by the time the development becomes
          funding.                                                       operational). Minimum service level standards



          The Leelanau General Plan - Funcdonal View                                        Public Facilities and Physical Services
                                                                                                                      Page 8-7








           in a village should address, at a minimum: 1)              Landfill, strategies should be developed to
           adequate sewer and water service, including                effectively examine alternatives to reduce the
           pipe widths, flow rates and capacities,                    waste stream and ensure backup space in
           construction, and related considerations; 2)               other landfill facilities. in particular, the
           adequate stormwater management controls                    feasibility of curbside recycling in densely
           including   retention    ponds, sedimentation              populated areas and ongoing recycling drop-off
           ponds,     erosion     control,    and     related         capabilities should be reviewed. Efforts will
           considerations;     and     3)   availability    of        need to be directed at developing prototype
           emergency services.                                        designs for integrated solid waste management
                                                                      stations capable of accommodating the full
             The future provision of public facilities and            scope of solid waste management operations
           physical services should also include a                    including recycling, drop-offs, composting, and
           comprehensive investigation of current and                 transfer stations.
           future anticipated recreation needs in the
           peninsula according to local perceptions and                  Funding alternatives to property taxes, such
           attitudes,standards, and service areas. To the             as revenue bonds and special assessments,
           extent     that    needs      are     identified,          should be evaluated for all future public
           comprehensive recreation plans should be                   facilities and physical service improvements
           prepared according to MDNR standards to                    and expansions. Funding mechanisms should
           identify effective local and peninsula-wide                take into consideration the beneficiary of the
           strategies for addressing these needs. Similar             improvement, the availability of state and
           activities should be pursued for the library               federal grant dollars, user fees, and other
           system as well.                                            available mechanisms.

             Future public facilities and physical services              In   addition    to    the    need    for    an
           must address the solid waste management                    interjurisdictional approach to the provision of
           situation and should be founded upon a                     public facilities and physical services on the
           periodically updated comprehensive solid                   peninsula, this plan advocates a far more
           waste management program. While the                        active role by the general public regarding
           program must recognize both the peninsula's                future decisions on improvements and/or
           and region's reliance upon Glen's Sanitary                 expansions of public facilities and physical
                                                                      services. In addition to improving public
                                                                      awareness of the issues through education so
                                                                      more informed decisions can be made, specific
                                                                      steps could actively be taken to actively solicit
                                                                      public input, including more convenient access
                                                                      to local administration offices and municipal
                                                                      staff, and holding public hearings as alternative
                                                                      solutions are devised.
                                        V. mo-

                                                                        A strong public school system based on
           wig
                                                               13     equal access and opportunity for continuing
                                                                      education is important to long term quality of
                                                               QC
                      4.                                              life. Location of school facilities can influence
                                                 MYL@S
                   7                            KIMMERLI
                                                                      development and traffic in an area. Some
                                                     ON
                                                  _1A                 school facility decisions are made independent
                                                                      of other government program and facility
                                                                      decisions, only strong cooperative efforts
                                                               (X
                                                                      based upon mutual respect can succeed in
           Myles @Gmmerly Park in Kasson Township is one of two       achieving common interests.
           parks operated by the county.


           Public FacilitFes and Physical Services                               The Leelanau General Plan - Funcdonal View
           Page 8-8











           PUBLIC FACILITIES AND                                                                 Commission.
           PHYSICAL SERVICES POLICIES AND
           ACTION STATEMENTS                                                   Action
                                                                               Statement:        Local      governments           should
               The     following        policies     and       action                            prepare, adopt and annually
           statements are intended to establish the                                              update a comprehensive capital
           blueprint for implementing the General Plan's                                         improvements                 program
           recommendations for the future of the                                                 compatible with the policies of
           peninsula's public facilities and physical                                            their comprehensive land use
           services.                                                                             plans and the Leelanau General
                                                                                                 Plan, and which is first reviewed
           Issue:                                                                                and recommended by the local
              Capital improvements programming.                                                  planning commission.

           Policy:           Have county and                    local          Action
                             governments adopt and annually                    Statement:        No new public facilities or major
                             update capital improvement                                          expansions or replacements of
                             programs for, the purpose of                                        existing public facilities should
                             assuring       and       coordinating                               be initiated that are not included
                             necessary improvements and                                          in an adopted local or county
                             expansions to public facilities                                     CIP.
                             and services compatible with
                             local comprehensive land use                      Action
                             plans and the Leelanau General                    Statement:        T h e     County Planning
                             Plan.                                                               Department should prepare and
                                                                                                 annually update an official map
           Action                                                                                of all proposed county and local
           Statement:       'T h e     County          P I a n n i n g                           capital facility improvements
                             Department should prepare and                                       replacements each year.
                             r e g u I a r I y     u p d a t e       a
                             comprehensive listing of all
                             proposed, under construction,                     Issue:
                             and completed county and local                       Protecting groundwater.
                             capital improvement projects
                             including but not limited to                      Policy:           Every effort should be made to
                             information on project type,                                        protect our groundwater. This
                             location, cost, funding source,                                     is crucial to protecting our lakes
                             timing and           implementation                                 and streams.             And it is
                             agency.                                                             important if we are to avoid the
                                                                                                 burden of supplying extensive
           Action                                                                                municipal sewer and water
           Statement:        The      County          Board        o f                           systems in the future.
                             Commissioners should initially
                             adopt and annually update a                       Action
                             comprehensive capital                             Statement:        The county should take to lead
                             improvements                program                                 role in seeing that septic
                             consistent with the Leelanau                                        systems and wells are properly
                             General Plan, which is first                                        maintained,        since      this     is
                             reviewed and recommended by                                         essential to the protection of
                             t h e    County          P I a n n i n g                            groundwater.



           The Leelanau General Plan - Functional View                                             Public Facilities and Physical services
                                                                                                                                 Page 8-9







           Action                                                                    protection of groundwater from
           Statement:      In addition to keeping current                            hazardous      materials.      The
                           records of septic system and                              County Planning Commission
                           well    permits,    the     health                        has   a    model     groundwater
                           department should    be funded to                         o r d i n a n c e a v a i I a b I e ,
                           enable them to      update past                           incorporating such requirements
                           records to the extent reasonably                          into. the site       plan   review
                           feasible.                                                 process.

           Action
           Statement:      Whenever property changes
                           ownership, the county should              Issue:
                           require that the septic system               Expansion of public sewer and water.
                           and well be certified by the
                           health department to be in
                           compliance      with      present         Policy:         Local governments in expanding
                           standards.    The responsibility                          current public sewer and water
                           should be that of the seller.                             facilities and services will need
                                                                                     to coordinate in a planned
           Action                                                                    phased manner with the
           Statement:      The county should encourage                               Leelanau General Plan.
                           property    owners     who      are
                           concerned, to request inspection          Action
                           of their septic systems and               Statement:      Local governments with existing
                           wells by the health department,                           public sewer and/or water
                           for an appropriate fee.                                   facilities and services should
                                                                                     prepare comprehensive studies
           Action                                                                    regarding   the    current     and
           Statement:      Bad problem areas, where                                  projected     conditions      and
                           widespread failure of septic                              capacities of the infrastructure
                           systems is suspected, or where                            based on alternative growth
                           failing systems may endanger a                            scenarios.
                           stream or lake, should be
                           identified. The county should             Action
                           allocate administrative funds so          Statement:      Local governments with existing
                           that each of these areas is                               public   sewer and/or water
                           methodically brought up to                                facilities and services should
                           code, one area at a time.                                 identify within their adopted
                                                                                     comprehensive land use plans
           Action                                                                    the   current    and    projected
           Statement:      In time, a system of periodic                             conditions and capacities of the
                           inspection of all septic systems                          infrastructure    and     specific
                           in  the   county     should     be                        policies   which      coordinate
                           established.                                              incremental service expansions
                                                                                     congruous with the planned
           Action                                                                    future land use pattern in the
           Statement:      All local units of government                             municipality and the village
                           administering    zoning     should                        service districts of the Leelanau
                           incorporate into their ordinances                         General Plan.
                           measures       ensuring       the



           Public Facilities and Physical Services                              The Leelanau General Plan - FunCdonal WeW
           Page 8-10









           Action                                                                                   districts and/or prohibiting new
           Statement:         If the rate of growth is very                                         development in areas without
                              rapid, local governments with                                         adequate on site septic facilities.
                              existing public sewer and/or                                          Where low technology solutions
                              water facilities and services                                         fail, consideration should be
                              should adopt comprehensive                                            given to creation of a limited
                              land use plan policies which                                          sewer system to eliminate a
                              identify the maximum annual                                           health threat in a particular area.
                              number of permitted new sewer
                              and/or water hook-ups based
                              upon current and projected
                              capacities, planned future land                    Issue:
                              use pattern, the adopted capital                       Stormwater management.
                              improvements program, and
                              growth management strategies.                      Policy:            County and local governments
                                                                                                    should adopt and coordinate
           Policy:            Local      governments          without                               regulations and programs to
                              existing public sewer and water                                       assure the               adequate
                              facilities and services should                                        management of stormwater as a
                              introduce such services only                                          result of new construction
                              when and where there is a                                             activities.
                              demonstrated need for such                         Action
                              services and no other feasible or                  Statement:         T h e      C o u n t y       D r a i n
                              preferable         alternative          is                            Commissioner's office should
                              available.                                                            d e v e I o p      I o n g    r a n g e
           Action                                                                                   comprehensive             stormwater
           Statement:         Local      governments           without                              management programs for the
                              public     sewer and/or water                                         purpose of educating the public
                              should include policies within                                        on related issues and facilitating
                              their comprehensive land use                                          communication and coordination
                              plans regarding the intention, or                                     between            s t o r m w a t e r
                              lack of intention, to introduce                                       management          initiatives      and
                              such      services       within       the                             projects         o f    the       local
                              planning period of the plan, and                                      governments and the county.
                              under what conditions and                                             The programs should include
                              where, the introduction of such                                       coordinating soil erosion and
                              services is to occur.                                                 sedimentation control and
                                                                                                    stormwater             management
           Action                                                                                   consistent with the structure in
           Statement:         Local      governments            should                              Grand      Traverse       County        if
                              initiate low technology efforts to                                    adequate financial resources are
                              prevent water pollution from                                          available.
                              leaking septic tanks along inland
                              lakes.      Such      efforts       could          Action
                              include, but are not limited to,                   Statement:         Local governments should adopt
                              annual (or more frequent if                                           subdivision          and       related
                              necessary)        septic      cleanouts                               development         regulations,        or
                              and/or inspections, mandatory                                         coordinate local provisions with
                              inspection at time of sale, the                                       any relevant county regulations.
                              creation of septic maintenance                                        These should include provisions



           The Leelanau General Plan - Functional View                                                Public Facilities and Physical Services
                                                                                                                                   Page 8- 11









                             to protect against floods, soil              Action
                             erosion, and sedimentation.                  Statement:       Local governments would where
                                                                                           feasible, establish "community
            Issue:                                                                         centers" as part of, or closely
                Government administration offices.                                         linked to government
                                                                                           administrative offices, to provide
            Policy:          County and local governments                                  a community "hub" with special
                             need adequate and accessible                                  services to all age groups.
                             government administrative
                             centers.


            Action
            Statement:       The county should evaluate the               Issue:
                             findings of the county capital                   Public input regarding public facilities and
                             facilities study to determine the            services planning.
                             current and projected spatial
                             needs of the county government               Policy:          County and local governments
                             offices and how these needs                                   should        adopt formal
                             can be most optimally met                                     mechanisms to solicit public
                             (including the use of technology                              input on the future planning and
                             based delivery systems) in a                                  construction       of   new       and
                             way consistent with the policies                              expanded public facilities and
                             of the Leellanau General Plan.                                physical services.
                                                                          Action
            Action                                                        Statement:       The county should hold a public
            Statement:       Local governments with existing                               hearing prior to taking any
                             administrative centers should                                 formal action on major new or
                             evaluate      their  current      and                         expanded public facilities or
                             projected          s p a c e    a n d                         other significant changes to its
                             technological needs, establish a                              current system of county public
                             program        for     renovation,                            facilities and physical services.
                             technological additions, and/or
                             relocation of offices.                       Action
                                                                          Statement:       The county should periodically
            Action                                                                         hold education forums for the
            Statement:       Local     governments        without                          purpose of providing information
                             existing administrative centers                               on    current     county       public
                             should adopt a program for                                    facilities and physical public
                             locating       and   funding       of                         facilities issues.
                             centralized offices capable of
                             meeting      the    current and              Action
                             projected (20 year projection)               Statement:       Each local government should
                             administrative needs.                                         hold a public hearing prior to
                                                                                           taking any formal action on
            Action                                                                         major new or expanded public
            Statement:       Local     governments         should                          facilities or other significant
                             publish and maintain regular                                  changes to its current system of
                             business hours.                                               public facilities and physical
                                                                                           services.




            Public Facilides and Physical Services                                     The Leelanau General Plan - Func6onal View
            Page B-12









          Action                                                                                      or in place of the current
          Statement:          Each local government should                                            volunteer fire              protection
                              periodically         hold     education                                 personnel.
                              forums for the purpose of                           Action
                              providing information on current                    Statement:          All local governments should
                              local     public      facilities       and                              adopt a uniform set of fire
                              physical public facilities issues.                                      protection           infrastructure
                                                                                                      standards such as the provision
          Issue:                                                                                      of    interconnecting             roads,
          Police and fire services.                                                                   expandable water systems, line
                                                                                                      sizes and fittings, and other
          Policy:             The       county          and       local                               construction-based standards.
                              g o v e r n m e n t s         s h o u I d
                              cooperatively develop programs                      Action
                              and standards to ensure                             Statement:          The county should establish a
                              adequate levels of police and                                           program for the establishment
                              fire services.                                                          and coordination of special
                                                                                                      crime prevention and monitoring
          Action                                                                                      programs such as neighborhood
          Statement:          The       county          and       local                               watch          a n d     o p e r a t i o n
                              governments should continue to                                          identification.
                              improve upon the capabilities of
                              existing automated police and                       Action
                              fire information and record                         Statement:          The county       should establish a
                              management systems, providing                                           mechanism to ensure that
                              police      and       fire    personnel                                 firefighters     know the specific
                              increased        coordination          and                              location         of hazardous,
                              communication between                                                   flammable, and               poisonous
                              facilities during emergency and                                         materials on farm, business and
                              non-emergency conditions and                                            industrial properties as part of
                              information upon which to base                                          if right-to-know" efforts designed
                              "fire loss management plans"                                            to minimize health threats to
                              and      other      fire     prevention                                 firefighters, other emergency
                              measures.                                                               services         personnel,           and
                                                                                                      adjoining landowners.
          Action
          Statement:          All local governments should                        Issue:
                              adopt uniform level of service                          Expansion       of recreational facilities.
                              standards          for     emergency
                              services       and      identify the                Policy:             Local governments should be
                              minimally acceptable level for                                          encouraged to acquire additional
                              specific conditions.                                                    recreational         acreage,         and
                                                                                                      expand the scope of recreation
          Action                                                                                      opportunities and services, to
          Statement:          All local governments should                                            meet the active recreation needs
                              develop, when/if the need                                               of the expanding population.
                              becomes apparent, a funding
                              mechanism to provide for "paid                      Action
                              on     call"      fire      protection              Statement:          All local governments should be
                              personnel, in coordination with                                         encouraged to prepare and



          The Leelanau General Plan - Functional View                                                   Public Facilities and Physical Services
                                                                                                                                      Page 8- 13








                          maintain      current    five-year                      recreation facilities throughout
                          recreation    plans which:       1)                     the peninsula and facilitating
                          identify    the   current     and                       long distance biking, hiking     '
                          projected recreation needs of                           horseback riding, and cross-
                          the municipality; 2) establish                          c ou ntry ski i ng , and
                          strategies to address the needs                         snowmobiling opportunities.
                          in a prioritized manner; and 3)
                          meet all the requirements of the         Action
                          MDNR to become eligible to               Statement:     The     county and local
                          receive recreation grant dollars.                       governments should consider, in
                                                                                  the development of park and
                                                                                  recreation facilities, potential
                                                                                  opportunities for local and
          Action                                                                  peninsula-wide economic
          Statement:      All local governments should be                         development opportunities
                          encouraged to develop a funding                         which are in character with the
                          program for . the purpose of                            peninsula.
                          generating    monies    for    the
                          purchase      of    recreational         Policy:        The county should continue to
                          acreage.                                                assist   in   the   delivery    of
                                                                                  recreation opportunities as part
          Action                                                                  of a more clearly defined.
          Statement:      Local governments should be                             recreation role.
                          encouraged     to   prepare     an
                          inventory of high recreational           Action
                          value acreage based upon                 Statement:     The county should consider the
                          established criteria and to take                        range of recreational roles most
                          action to acquire this acreage                          appropriate for it to adopt
                          where     such   acquisition     is                     including, but not limited to,
                          consistent with the local 5-year                        maintenance of current facilities
                          recreation plan.                                        and operations only, expansion
                                                                                  of services and site acquisitions,
          Action                                                                  establishment      of     passive
          Statement:      Local governments should be                             recreation     parks,      and/or
                          encouraged to adopt zoning                              coordination of and technical
                          ordinance regulations which                             support to local governments in
                          require    the   provision      of                      the   provision   of    recreation
                          designated open space areas as                          opportunities.
                          part    of    the    residential
                          development approval process             Action
                          f o r  I a r g e r e s i d e n t i a I   Statement:     Upon the identification of the
                          developments.                                           optimum recreation role of the
                                                                                  county, additional policies and
          Action                                                                  action statements should be
          Statement:      Local governments and the                               adopted in pursuit of that role.
                          county should jointly prepare,
                          monitor, and update a peninsula-
                          wide linked trail system plan for
                          the    purpose      of    linking
                          community        centers and


          Public Facilides and Physical Services                              The Leelanau General Plan - Functional View
          Page 8-14









           Issue:                                                                         expanding population.
              Variety and safety of water recreation                     Action
           opportunities.                                                Statement:       The county should continue to
                                                                                          encourage and support local
           Policy:         The      county       and     local                            governments in the provision of
                           governments should encourage                                   accessible library services.
                           the continuation of a variety of              Action
                           water recreational activities                 Statement:       Local governments with existing
                           while ensuring an adequate level                               library facilities should formally
                           of public safety between                                       evaluate    the adequacy of
                           activities.                                                    e x i s t i n g s p a t i a I a n d
                                                                                          technological facilities in regard
           Action                                                                         to current and projected needs
           Statement:      The      county       and     local                            and     establish        c a p i t a I
                           governments should            review                           improvement and funding
                           current ownership interests in                                 programs to address the needs,
                           public shoreline parcels and                                   possibly with some alternative
                           where      desirable,     take    the                          funding sources.
                           necessary steps to strengthen                 Action
                           ownership ties through fee                    Statement:       Local governments should locate
                           simple ownership.                                              future library locations to help
                                                                                          create a community "hub" by
           Action                                                                         integrating them with
           Statement:      The      county       and     local                            complementary public uses such
                           governments        should     jointly                          as governmental administrative
                           prepare an inventory of potential                              offices and community activity
                           shoreline recreational acreage                                 centers. Consideration should be
                           and take action to acquire                                     given to greater shared public
                           acreage of recreation value                                    use through        communication
                           where such acquisitions are                                    networks with county and state
                           consistent with the local 5-year                               agencies.
                           recreation plans.

           Action                                                        Issue:
           Statement:      Local governments with inland                    Solid waste management.
                           lakes should prepare coordinated
                           regulatory provisions intended to             Policy:          The county should periodically
                           identify permitted water surface                               update a comprehensive
                           activities within specific water                               peninsula-wide solid waste
                           surface use areas.                                             management program consistent
                                                                                          with the requirements of Act
           Issue:                                                                         641.
              Library services.
                                                                         Action
           Policy:         The      county       and local               Statement:       The county should coordinate
                           governments should encourage                                   with local governments to
                           the expansion of the roles and                                 maintain a peninsula-wide and
                           services of library facilities to                              convenient system of recycling
                           meet the increasing library                                    centers including, if feasible,
                           needs      of    the     peninsula's                           curbside recycling.


           The Leelanau General Plan - Functional View                                      Public Facilities and Physical Services
                                                                                                                     Page 8-15










          Action
          Statement:    The county should continue and,
                        where feasible, improve the
                        peninsula-wide        collection
                        system    whereby      household
                        hazardous    wastes    can     be
                        periodically   collected     and
                        properly disposed of.
          Action
          Statement:    The county should expand the
                        solid   waste management
                        education program intended to
                        educate the public regarding
                        solid waste management issues
                        in the county and the steps the
                        local citizens can take to
                        constructively   contribute    to
                        m i n i m i z e waste and
                        environmental. degradation.








                                        t





                                                                                                    C;








                                         7t



                                                          A- t

















          The public enjoys using park facilities on Glen Lake.

          Public Facilities and Physical Services                         The Leelanau General Plan - Functional View
          Page 8- 16









                                                                    Chapter 9
                                              NON-MUNICIPAL PUBLIC SERVICES



          INTRODUCTION                                                         the planning process for the peninsula. These
                                                                               services operate hand-in-hand with many
              County and         local governments do not                      municipally provided services and with other
          provide all of the     important public services on                  services provided by the private sector. (See
          the peninsula. Residents and visitors also rely                      Working Paper #10 for more information.)
          on natural gas, telephone, cable TV, electric,
          and medical services provided by private sector
          businesses. The availability of these services                       ISSUES
          impacts the quality of life on the peninsula.
          The availability of utilities can greatly affect                     Electric Service
          economic development potentials,
          communications, and available day to day                                 Electrical service is provided to the entire
          conveniences. Availability of medical services                       peninsula through Cherryland Rural Electric
          can have a profound impact upon local quality                        Cooperative and Consumers Power Company.
          of life conditions.                                                  See Map 9-1.             Wolverine Power Supply
                                                                               provides electricityto numerous substations on
              Because of the importance of these non-                          the peninsula. Cherryland Electric Cooperative
          municipal services, the continuation and                             distributes this electricity throughout Leelanau
          expansion of them must be incorporated into                          County. Consumers Power Company is also
                                                                               responsible for transmitting electricity to
                                   Map 9-1                                     numerous        substations        located      on the
                   ELECTRIC AND GAS SERVICES                                   peninsula.


                                                                               Gas Service


                                     0       5MI                                   Gas service is far more limited in the
                                                                               peninsula than is electrical service. Michigan
                                                                               Consolidated Gas Company is the sole supplier
                                                                               of gas on the peninsula and service is only
                                 N
                                                                               provided to the Townships of Bingham,
                                                                               Elmwood, Leelanau and Suttons Bay, and the
                                                                               Villages of Northport and Suttons Bay. The
                                                                               lack of gas service limits the options available
                                                                               for heating and other gas burning residential
                                  'cv                                          and nonresidential activities.

                                                                               Telephone Service

                                                                                   Telephone service is provided throughout
                                                                               the entire peninsula by two companies;
                                                                               Michigan Bell Telephone Company provides
                                                                               telephone service to the communities of Lake
                  CONSUMERS          CHERRYLAND                                Leelanau, Leland, Northport, and Greilickville,
                  POWER              REA SERVICE         MICHCON
                  SERVICE AREA       AREA                GAS LINE              and the balance of the peninsula is served by
                                                                               Century Telephone Company. See Map 9-2.



          The Leelanau General Plan - Funcdonal View                                                        Non-municipal Public Services
                                                                                                                                 Page 9-1








                                                                           patient and out-patient services, specialized
                                   Map 9-2                                 senior citizen care, emergency room facilities,
                    COMMUNICATIONS            FACILITIES                   laboratory and X-ray facilities, and obstetrics
                                                                           and operating room facilities. Residents and
                                                                           visitors to the peninsula also have access to
                                                                           four dental clinics and seven private clinics and
                                                                           doctors practicing psychiatry, optometry, and
                                 0        5MI                              general medicine. The Grand Traverse/Leelanau
                                                                           Community Mental Health Services facility is
                                                                           located in Suttons Say. The Maple Valley
                              N                                            Nursing Home in Maple City provides care to
                                                                           senior citizens.



                                                                           Improvements in health care and utility
                                                                           infrastructure inevitably improve local quality
                                                                           of life conditions. As quality of life conditions
                                                                           improve, the area becomes more attractive to
                                                                           both potential residents and businesses.



                           CENTURY            COMMERCIAL                       Following the national trend, the population
                           TELEPHONE       46 TV TOWER
                      9M MICHIGAN BELL        COMMERCIAL                   age level of the Leelanau Peninsula is rising.
                      M.TELEPHONE          0 RADIO TOWER                   This aging process will be accompanied by an
                                                                           increase in demands placed upon area health
                                                                           care facilities. This increase will undoubtedly
                                                                           show itself in both a heightened need for
                                                                           additional health care facilities and greater
           Cellular One Phone Company and Century                          accessibility, and herein lies the fundamental
           Cellunet, Inc. provide very limited cellular                    challenge. Leelanau Memorial Hospital is a
           phone service in the southeastern portion of                    comparatively small facility. The high and
           the peninsula.                                                  continually rising costs of health care today
                                                                           generally necessitates the need for larger
                                                                           hospitals to assure long term economic
           Radio Service                                                   viability. Thus, whereas the peninsula is
                                                                           approaching a need for increased health care
              There are     five radio stations servicing the              facilities and greater ease of access, the
           peninsula, four of which have towers on the                     primary health care facility is becoming
           peninsula.                                                      particularly     vulnerable      to    health      care
                                                                           economics and its long term viability on the
                                                                           peninsula may be in question. Further, distance
           Medical Facilities                                              exacerbates the already difficult accessibility.

               Leelanau Memorial Hospital in the Village of                   While the peninsula is experiencing these
           Northport is the single primary health facility                 health care needs and, to a lesser extent, gas
           on the peninsula and is affiliated with Munson                  and other utility expansion needs, it must be
           Medical Center in Traverse City. The hospital                   recognized that improvements in these areas
           was constructed in 1953 and provides a full                     will act to attract development. Improvements
           range of medical care facilities including in-                  in health care and utility infrastructure


           Non-municipal Public Services                                               The Leelanau General Plan - Function7l -View
           Page 9-2









         inevitably improve local quality of life                   county should be channeled to assure the
         conditions. As quality of life conditions                  transition results in minimal disturbance to the
         improve, the area becomes more attractive to               daily patterns of the peninsula and its
         both potential residents and businesses.                   residents, businesses, and visitors.

                                                                       Joint initiatives by the public and private
         A FRAMEWORK FOR THE FUTURE                                 sectors could be established and aimed at
                                                                    improving    health care services on the
            The Leelanau General Plan recognizes the                peninsula. Consideration should be given to an
         critical link between non-municipal public                 array of options to reach this end including
         services and the future welfare of the                     opportunities for extending the life expectancy
         peninsula's municipalities and its residents. In           of the Leelanau Memorial Hospital through
         this regard, it becomes vital that the planning            special funding programs and services offered.
         of future utility expansions occurs in a                   Also, special health care transportation
         coordinated manner with the future growth                  systems could be examined which might better
         and development programs of the individual                 improve access to public and private health
         local municipalities as well as the peninsula as           care facilities. Other programs which might
         a whole. This is particularly applicable for gas           provide    for   a    greater     peninsula-wide
         distribution and television cable service, both            distribution of health care facilities while still
         of which are provided in limited fashion.                  meeting the intent of local community plans,
                                                                    zoning ordinances, and this plan could also be
            Similarly, attention must be directed toward            pursued.
         alleviating   the    burden     upon     peninsula
         residents, businesses, and visitors of paying
         excess telephone charges due to the                        NON-MUNICIPAL PUBLIC SERVICES
         peninsula's multiple long distance charges.                POLICIES AND ACTION STATEMENTS
         Future telephone service should serve the
         peninsula with a single long distance code                    The    following     policies and        action
         number. Coordination among telephone service               statements are intended to establish the
         companies, local municipalities, and the                   blueprint for implementing the General Plan
                                                                    recommendations for the future of the
                                                                    peninsula's non-municipal public services and
                                                                    facilities.



                                                                    Issue:
                                                                    Telephone, electric, gas, and related utilities.

         7 WT
                                                                    Policy:         County and local governments
                                                                                    should work cooperatively and
                                                                                    constructively with public and
                                                                                    private utility companies.



                                                                    Action
                                                                    Statement:      County and local government
                                                                                    should    coordinate,    to the
                                                                                    greatest degree practical, all
         Century Telephone Company office in Cleveland Township                     planning of and construction of
         near Maple City.


         The Leelanau General Plan - Functional View                                        Non-municipal Public Services
                                                                                                               Page 9-3








                             capital improvement projects                                      the expansion of service areas
                             with      the      planning        and                            to support the planned future
                             construction activities of public                                 land use pattern and timing of
                             and private utilities.                                            development.


            Action                                                           Action
            Statement:       Local      governments          should          Statement:        Local governments should adopt
                             develop policies regarding                                        zoning       and      subdivision
                             planned future land use patterns                                  regulations which require the
                             and the timing of development                                     placement of utilities below
                             in coordination with existing and                                 ground in all cases where
                             projected utility service areas                                   practically feasible.
                             and the Village Service districts
                             of the Leelanau General Plan.


            Action
            Statement:       Local      governments          should
                             communicate with public and
                             private utility offices regarding




























                                                                                                                49




                                      The North Flight medical helicopter service is available to Leelanau County.


            Non-municipal Public Services                                                 The Leelanau General Plan - Funcdonal
            Page 9-4









                                                        Chapter 10
                                            ECONOMIC DEVELOPMENT



         INTRODUCTION                                             2000. See Table 10-1. Though local growth
                                                                  rates are expected to vary, impacts will be felt
            The economy of a region is the driving force          peninsula-wide. This growth is expected to
         behind its evolution. However, while a strong            result in nearly 3,000 additional and seasonal
         economy does not necessarily relate to a                 dwelling units by the year 2000. See Tables
         heightened quality of life, a struggling                 10-2 and 10-3. If past trends are an indication
         economy almost always assures a decline in               of what the future will bring, seasonal homes
         the quality of life. A fundamental element of            will continue to increase at a faster rate than
         the Leelanau General Plan is the establishment           year-round residences. See Figure 10-1.
         of policies to provide for a strong economy
         within the context of sustainable growth and
         development. Economic development does not               The peninsula's population is increasing
         have to occur at the expense of the natural or           between 2.5 - 3% per year and is expected to
         visual environment. Conversely, peninsula                gain 5,000 additional persons by the year
         residents do not have to settle for a lower              2000.
         standard of living in the name of environmental
         protection. A basic premise of the General Plan
         is that a sustainable, healthy economy is                   Those persons migrating to the peninsula,
         dependent upon a healthy environment, and no             often retirees and commuters, are wealthier
         where is this more true than on the Leelanau             and buy high value property which in turn
         Peninsula. (See Working Paper #7 for more                increases area property values and heightens
         background information.)                                 the already existing disparity among socio-
                                                                  economic groups. Many Leelanau County
                                                                  workers employed within the industrial sectors
         A basic premise of the General Plan is that a            are earning less than their counterparts in other
         sustainable, healthy economy is dependent                nearby counties and the state as a whole.
         upon a healthy environment, and no where is              Ultimately, the public service demands created
         this more true than the Leelanau Peninsula.              by in-migration population places a
                                                                  disproportionately greater tax burden upon
                                                                  lower-income and fixed income households.


         ISSUES                                                      This residential growth will increase the
                                                                  labor force for which in-county jobs are very
            As might be expected, residents are deeply            limited. The number of "bedroom community'
         concerned that uncontrolled development on               residents will increase as will the number of
         the peninsula is negatively impacting the                commuters. See Map 10-1. The commute to
         environmental and visual quality. This concern           employment centers outside the peninsula will
         is being fueled by disconcerting economic                be exacerbated by increased congestion and
         trends and conditions.                                   traffic safety hazards. What is worse is that a
                                                                  significant portion of the existing peninsula
                                                                  labor force lacks competitive skill advantages
         Economic Trends                                          to secure better jobs and will undoubtedly
                                                                  suffer by comparison with the newly arriving
            The peninsula's population is increasing              labor force. The combined impact of new
         between 2.5 - 3% per year and is expected to             residential and nonresidential development will
         gain 5,000 additional persons by the year                place greater demands upon available public


         The Leelanau General Plan - Func&onal View                                             Economic Development
                                                                                                           Page 10-1










                                           Table 10-1                                                                         Table 10-2
                        1990 CENSUS AND PROJECTIONS                                                               PROJECTED POPULATION
                        Jurisdiction                    1990                2000                                     AND HOUSING UNITS
                Bingham T-vp.                           2,051               2,666                                      LEELANAU COUNTY
                Centerville Twp.                            836             1,087
                Cleveland Twp.                              783             1,018                                  Projected                    % Increase from
                Elmwood Twp.                            3,427               4,455                   Year          Population                    Previous Decade
                Empire Twp.                                 503                 654                 2000               21,485                           30-Oolo
                Village of Empire                           355                 462                 2010               26,255                           22.2%
                Glen Arbor Twp.                             644                 837                 2020               29,747                           13.3%
                Kasson TWp.                             1,135               1,476
                Leelanau Twp.                           1,089               1,416
                Leland T%?.                             1,642               2,135                                      Total                     New               %
                Village of Northport                        605                 787
                Solon Twp.                              1,268               1,"8                    Year       Housina Units                    Units         Increase
                Suttons BayTwp.                         1,589               2,066                   2000               14,106                   2,935             2601b
                Village of Suttons Bay                      561                 729                 2010               16,500                   2,394            17
              ,City of Traverse City                        39                  51                                     19,250                   2750              17%
              ILeclanau County                         16,527             21,485



                                          Figure 10-1
                   PERCENT CHANGE IN HOUSING UNITS

                                                                                                                                                                          t
                  El % Increase                     13 % Increase
                        Between 1970 and                    Between 1980 and
                        1980                                1990




                                                                                                                                                     =6-Z
                        140.00%

                        120.00%-

                        100.00%

                         80.00%-

                         60.00%-
                                                                                                                                                            Y   'A
                  a.
                         40.00%
                                         ............
                                                                ............
                                                                ............
                                                                ............
                                          ...........           ............
                                                                ............
                         20.00%           ............

                                                                ............
                            0.00%
                                       Total Housing            Vacational,
                                             Units              Seasonalor                                                                                                   rt
                                                                Migratory
                                                                                                P2 0 0:0















                                  Source: Decennial Census                                        Downtown Leland


              Economic Development                                                                                 The Leelanau General Plan - Functional View
              Page 10-2









         services      beyond      just    the     roadway           is a destination location. Normal transportation
         infrastructure, and will also place increased               routes do not "pass through'the peninsula due
         demands upon the peninsula's human services                 to its geographic location. As a result, the
         delivery system.                                            potential pool of consumer dollars are limited
                                                                     to only those persons who are traveling to or
                                                                     living in the peninsula. The indirect surface
         There is no clear understanding of the                      travel and comparatively limited air, water, and
         economic impact of the tourism industry upon                rail service further adds to the challenges for
         the peninsula's overafl economy nor how it                  economic development. However, there are
         influences other sectors of the peninsula's                 also opportunities. For example, existing local
         economy.                                                    businesses may not be capturing as much of
                                                                     the plentiful transfer dollars which are being
                                                                     imported into the peninsula (in the form of
                                                                     social security, pensions, etc.) as they could
         Tourism Importance                                          be.

            While the tourism industry is most active in
         the warmer months, it impacts the economics                 Fiscal Implications
         of the peninsula all year. Many of the area jobs
         are seasonal and do not provide year-round                     The growth of the peninsula's population is
         income for workers nor generate year-round                  altering land values as well. The percentage of
         sales taxes. Still, tourism dollars continue to             land in farms (by SEV) has been steadily
         increase within the peninsula as do the number              decreasing since 1974 while residential
         of registered water craft, indicators of a                  valuation has been steadily increasing. See
         growing tourism economy. Still, there is no                 Map 10-2. The amount of land in farms has
         clear understanding of the impact of the                    correspondingly gone down while land in
         tourism industry upon the peninsula's overall               residential use has gone up. While the
         economy nor of how it influences other sectors              peninsula's total SEV has increased from
         of the peninsula's economy.                                 approximately $225 million in 1980 to $878
                                                                     million in 1993, more and more national
                                                                     studies are beginning to suggest that new
                                                                     development, contrary to traditional thinking,
         The peninsula is geographically isolated - it is            does not "pay for itself" across the board, and
         a destination location.                                     that, in fact, the additional public services to
                                                                     meet the demands of new development often
                                                                     cost more than the additional taxes collected.
            Though service, retail sales, agriculture, and           If true in Leelanau County, the current trend in
         construction are the peninsula's export                     land use could seriously undermine balanced
         industries, it is clear that the comparative lack           economic development efforts by presenting
         of commercial and industrial development on                 public service financial challenges that cannot
         the peninsula places the tourism industry in                be met by new development. This would mean
         that much more of a dominant role. To provide               higher taxes by all residents to meet new
         for a more balanced economy is particularly                 public service needs created by new residents.
         difficult on the peninsula as there are limited
         places where a higher level of public services
         are available.                                              FRAMEWORK FOR FUTURE POLICY


         Geographic Isolation                                           It is a goal of the Leelanau General Plan to
                                                                     encourage a balanced peninsula economy. This
            The peninsula is geographically isolated - it            balance hinges upon the ability to realize the


         The Leelanau General Plan - Functional View                                               Economic Development
                                                                                                               Page 10-3









                                                                  Table 103
                                                       SEASONAL POPULATION
                                                     Estimated in 1975        Estimated in 1981         Estimated in 1987
                  December to February                      5,645                     2,788                    15,000
                  March to May                              6,856                     2,759                    13,000
                  June to August                            56,765                    42,184                  113,000
                 September to November          1          12,400                    7,283        A          43,000

               Source: Leelanau County Solid Waste Management Plan, 1975& 1981 figureNWMCOG, IS87Ext. by Gosfing& Czubak.

           large economic potential of the peninsula's                     the tourism industry on the peninsula be
           resources while, at the same time, recognizing                  documented. New research must be directed in
           the fragile nature of these resources and taking                this area to document seasonal populations. It
           strong protective actions to ensure their                       should assist in identifying appropriate role of
           perpetuity.         Sustainable        growth       and         tourism on the peninsula and the character
           development, with environmental protection,                     that future tourism development should reflect.
           and a more diversified economic base are the                    This research and data collection should
           linchpins for a balanced peninsula economy.                     include the establishment of a monitoring
           The absence or failure of any one of these                      system to identify tourism trends and
           three elements makes the others of little value                 conditions on the peninsula and its local and
           or, in the worst case, a destructive force.                     regional impacts. To the extent that tourism
                                                                           continues principally as a summer activity,
               To achieve a balanced economy, it is critical               efforts should be directed at attracting new
           that a clear understanding of the impacts of                    opportunities which are generally of low

                                 Map 10-1                                                        Map 10-2
                      WORK FORCE REPORTING                                      RESIDENTIAL SEV: 1984 AND 1992
                    OUTSIDE LEELANAU COUNTY





                                                                                   U)GLWMU
                                                                                      Wh4@nty-
                                                        LEELANM                              CkAled                  LEELANA
                                                                13%                @9=                                El
                                                                                   @ IWA                              El
                                                                                      1992

                                                      surrONS                                                       SUTTO
                                                       SAY                                                           SAY
                                              LELAND  39%     Su                                             LELAND
                                              27%               41%                                          E@



                                                    Ba4GHAM                                    CLEV 0             601GRAM
                                cLeveLAND CENnW4LLE Sm                                                   CENTEMLE
                   GLEN A"BOA    M        37%                                  GLEN ARBOR E@              [H]
                     18%                                                                                   r-7


                    BANAS       KASSON     SOLON                                   BAPME       XASSON      SOLON
                                           66%    EL)AWOOO                                                       ELMWOOD
           Em"                  sn                                                 EE          40EE          (40qH0q]    ii U
           30%                                                                     C44qE          [44qH4q]         F-7

                                                            N
                                                 ScAw q=                                                         sc@u
                                                NOVEMBER. 199
                                                          2                                                    NOVEMBER, 199
                                                               VIU9
                                                               r

















           Economic Development                                                         The Leel4qanau General Plan - Functional View
           Page 10-4










                                                                         sensitive resource base which characterizes
                                                                         the peninsula. At the same time, these
                                                                         resources must be recognized for their long
                                                                         term non-economic benefits and should be
                                                                         approached with a responsible manner with a
                                                                         strong sense of stewardship.




                                                                         More and more national studies are beginning
                                                                         to suggest that new development, contrary to
                                                                         traditional thinking, does not "pay for itseIr
                                                                         across the board, and that, in fact, the
                                                                         additiona1public services to meet the demands
                                                 'F    7
                                                                         of new development often cost more than the
                                           _e     t;o@@                  additional taxes coffected




                                                                            In striving for this economic future, a major
                            NO,
                                                                         effort should be made to create more year-
                                                                         round jobs in businesses and industries which
                                                                         have     demonstrated        a    commitment to
                                                                         environmental protection or which by their
                                                                         nature do not pose threats to the peninsula's
         The Grand Traverse Band Casino in Peshawbestown.                environmental       integrity.    Location criteria
                                                                         should include proximity to public services,
         intensity    and     require    limited landscape               utilities, transportation, work force, and
         alterations. Opportunities to be pursued in this                associated      logistical    elements.      Potential
         regard could include marina expansions, the                     individual industrial sites on the peninsula
         enhancement of the Manitou Bottomland                           should     be     evaluated      for    future     use
         Preserve, historical tours, continued support                   consideration. Equal efforts should be directed
         and protection of the peninsula's special                       at expanding the local business base through
         natural tourist attractions, bike tours, and                    a   variety     of    initiatives    including      the
         facilities, and the expansion and promotion of                  development of a business list.
         nature appreciation and interpretation facilities.


                                                                            It is of particular importance that economic
         Sustainable growth and development, with                        development on the peninsula is not
         environmental protection, and a more                            encumbered by the duplication of services
         diversified economic base are the linchpins for                 among the many agencies involved. A data
         a balancedpeninsula economy.                                    base should be developed which identifies the
                                                                         agencies and offices offering economic
                                                                         development assistance in the peninsula and
                                                                         these agencies should be regularly contacted
             The economic base should be diversified.                    to uncover new programs and other support
         The economics of tourism do not support                         information. A linkage with the Traverse Bay
         much of the peninsula's year-round population.                  Economic Development Corporation should be
         Opportunities        for    additional      economic            established with the purpose of coordinating
         development must be provided which can                          economic development activities from within
         operate within, and be compatible with, the


         The Leelanau General Plan - Functional View                                                      Economic Development
                                                                                                                      Page 10-5








          and out of the peninsula, distributing marketing         and compatible mixed uses, small scale
          materials, and providing specialized training            developments, and signage, which is sensitive
          programs. There is a need for consistent, long-          to   the    surrounding    natural   and     rural
          term economic development leadership in the              environment. Commercial areas should be
          peninsula     and     coordinated       economic         pedestrian friendly and landscape amenities
          development      services for the        business        should enhance the village setting. Site
          community.                                               development associated with new economic
                                                                   development projects should be guided by the
             The increased economic development                    recommendations of the Grand Traverse Bay
          activity anticipated from these initiatives              Region Development Guidebook.
          should be guided to those areas of the
          peninsula planned for village development and               All businesses operating with heightened
          supported by the necessary public facilities and         risks of environmental contamination should be
          convenient to the work force. All capital                monitored through the development of a
          improvements should be well planned, phased,             regular and ongoing peninsula-wide monitoring
          and coordinated with adjoining municipalities            system. Local municipalities should adopt
          and county projects. Model zoning language               environmental regulations included in the
          should be prepared which provides for planned






















                              tube










                                                                                                   IL





                                                                                                                 cc




                                                                                        W,


                                                                    Y.




                  Elmwood Township Marina in Gredickville.


          Economic Development                                                The Leel-anau General Plan - Funcdonal View
          Page 10-6









          Grand Traverse Bay Region Development                     expedite communications and improve
          Guidebook       to   better     protect     future        education programs and access. This network
          environmental integrity.                                  should include a community/school access
                                                                    channel and a telephone system which ensures
             The Leelanau General Plan calls for an                 fast, convenient, and lower cost service than
          aggressive program to protect the peninsula's             is currently available.
          agricultural economy. A critical component of
          this program relates to the peninsula's future
          land use pattern, as discussed in Chapter 6. In           ECONOMIC DEVELOPMENT
          addition, however, the General Plan                       POLICIES AND ACTION STATEMENTS
          encourages the expansion of marketing
          opportunities for farmers including the                       The    following    policies    and     action
          promotion of locally produced farm products,              statements are intended to establish the
          mail-order businesses for farm products,                  blueprint for the General Plan's vision for
          farmland tourism networks, organically grown              future economic development.
          products, and the examination of national and
          global marketing opportunities. In addition,
          continuous monitoring of trends and conditions            Issue:
          in crop production, P.A. 116 enrollments,                    While the effects of tourism are great in the
          conservation reserve programs, and other                  peninsula, there is no recent, formal impact
          agricultural economic indicators should become            assessment of this sector of the economy.
          routine and the data generated applied to                 Without impact assessment, decisions on the
          current and future marketing initiatives.                 balance between tourism and environmental
                                                                    protection will remain uninformed.


          The Leelanau General Plan calls for an
          aggressive program to protect the peninsula's             Policy:         Define the optimum role of
          agricultural economy.                                                     tourism and tourism
                                                                                    development in the peninsula
                                                                                    consistent with protection of the
              Improved employment opportunities for                                 natural environment.
          many of the residents on the peninsula will
          remain out of reach without improved job
          skills. The training needs of target industries           Action
          must be identified and appropriate training               Statement:      Cooperate with Michigan State
          provided, The peninsula should become part of                             University, Travel and Tourism
          the Northwest Michigan Community College                                  Resource Center and the
          District to reduce tuition rates and gain easier                          Michigan       Department       of
          access to needed training programs. Satellite                             Commerce Travel Bureau to
          centers should also be established to also                                assess the impact of tourism on
          provide easier access to training opportunities.                          the peninsula economy.
          These employment programs should not be
          reserved for adults only, but programs should
          be developed for the peninsula's children                 Action
          which encourage leadership and independence.              Statement:      Devise and maintain a data
                                                                                    collection     and    monitoring
              The future evolution of the economy should                            system to continuously evaluate
          be supported by an improved peninsula-wide                                seasonal population changes
          information system. An integrated high-tech                               and other local impacts of
          information network should be developed to                                tourism.



          The Leelanau General Plan - Functional View                                              Economic Development
                                                                                                             Page 10- 7








           Action                                                   Action
           Statement:     Initiate a feasibility study, with        Statement:      Work with the Department of
                          assistance from the Department                            Natural Resources, local, and
                          of Natural Resources, on the                              state-wide groups to restore,
                          expansion of select peninsula                             improve, and maintain sport and
                          marinas.                                                  commercial fisheries.

           Action                                                   Action
           Statement:     Strengthen historic preservation          Statement:      Work closely with Sleeping Bear
                          efforts in the peninsula and                              Dunes National Lakeshore to
                          develop    a   formal tour       or                       promote     and    protect    park
                          guidebook        f o r   historic                         features.
                          features/trails.
                                                                    Action
                                                                    Statement:      Actively   promote regulatory
                                                                                    measures which protect the
                                                                                    attractive natural features in the
                                                                                    peninsula using view amenity
                                                                                    protection, site plan review, and
                                                                                    other site design measures.

                                                                    Action
                                                                    Statement:      Promote the development of an
                                                                                    integrated greenway/trail system
                                                                                    in the peninsula.


                                                                    Action
                                                                    Statement:      Promote the development of
                                                                                    additional small parks in the
                                                                                    peninsula,    especially along
                          0                                                         lakeshores, streams, and ridges.

                                                                    Action
                                                                    Statement:      Create a wildlife enhancement
                                                                                    committee for the peninsula to
                                                                                    establish such things as a
                                                                                    network of nesting boxes;
                                                                                    w i I d I i f ecorridors,      re-
                                                                                    establishment       of     forage
                                                         7
                12--y 7--7                                                          vegetation; and establishment of
                                                                                    native wildflower meadows.
                         Oft
                 -7@ *_   I
                                            @7

                                                                    Action
                                                                    Statement:      Assemble and make available
                                                                                    information regarding county
                                                                                    opportunities to enjoy nongame
                                                              Z
                                                                                    wildlife and natural areas.


                          loft
                                                       "NAM-

           Businesses in Glen Arbor.


           Economic Development                                                 The Leelanau General Plan - Functional view
           Page 10-8











          Issue:                                                     Action
             The peninsula needs more year-round jobs                Statement:       Investigate the job creation
          in industries which are sensitive to the                                    potential of meeting the special
          environment.                                                                needs of an aging population
                                                                                      through health services.
          Policy:         Economic development
                          leadership should spearhead a              Issue:
                          business retention and                         The stability of agriculture in the peninsula
                          development program for the                is eroding and along with it a prime economic
                          peninsula.                                 base.

          Action                                                     Policy:          The county and local units of
          Statement:      Develop a business visitation                               government should initiate
                          program, conducted by                                       proactive measures to protect
                          economic development                                        farmland (see Land Use
                          professionals for all industrial                            chapter).
                          facilities and large employers in
                          the county. The purpose of such            Action
                          visits will be to identify needs           Statement:       Develop a         peninsula-wide
                          and opportunities for business                              system      for    transfer      of
                          r e t e n t i o na n d     future                           development rights or purchase
                          development through continued                               of conservation easements to
                          open communication.                                         protect important agricultural
                                                                                      lands by compensating the
          Action                                                                      landowner for its development
          Statement:      Develop a commercial survey for                             value.
                          the county focusing on impacts
                          of tourism on businesses, the              Action
                          nature of commercial                       Statement:       Devise and implement training
                          establishments, and needs for                               programs       f o r   builders,
                          technical assistance.                                       developers and Realtors in the
                                                                                      peninsula to familiarize them
          Action                                                                      with new peninsula
          Statement:      Develop a program to increase                               developmentand redevelopment
                          export     activities     i n   the                         polices as they are adopted by
                          peninsula.                                                  local governments to implement
                                                                                      the Leelanau General Plan.
          Action
          Statement:      Investigate access to venture              Action
                          capital and develop avenues to             Statement:       The county should work with
                          tap it as opportunities present                             the Soil Conservation Service to
                          themselves.                                                 devise an agricultural data base
          Action                                                                      which more closely monitors
          Statement:      Promote      the    growth      and                         crop production, P.A.           116
                          development       of    small-scale                         enrollments, conservation
                          (cottage industries) which retain                           reserve programs, and other
                          rural character and do not                                  appropriate agricultural
                          overburden public services.                                 preservati on/su p port programs.





          The Leelanau General Plan - Functional View                                               Economic Developm
                                                                                                                Page 10-9










           Issue:                                                          Action
               Communication among economic                                Statement:       The county should initiate and
           development entities is limited and as a                                         maintain communication with-
           consequence, their efforts are frequently                                        federal Economic Development
           fragmented.                                                                      Administration; Michigan
                                                                                            Department of Commerce
           Policy:          The county should become                                        regional     office;     Northwest
                            familiar with all appropriate                                   M i c h i g a n    C o u n c i I    of
                            local, regional, state and federal                              Governments;             Michigan
                            entities responsible for economic                               Employment Security
                            development efforts and should                                  Commission, Bureau of
                            not     duplicate         effective                             Research and Statistics; the
                            programs.                                                       Traverse        Bay      Economic
                                                                                            Development Corporation; local
           Action                                                                           utility companies; and other
           Statement:       The county should develop a                                     appropriate entities as identified.
                            directory        of      economic
                            development groups, state and
                            federal programs and technical
                            resources available for small
                            businesses.

















                                                                                                                   @Q


                                                                             4






                                                                                            -7-77:7
                                                                                                                                 AA





                                                                                                                                    CC

                                                                    J"
                                                                                         W 01: ;-M

                                                                                                                                   Q
                                                           At
                                                                                                                  'A@


           The Lake States Insurance building, known locally as the Reef Building, in Gredickville.


           Economic Development                                                        The Leelanau General Plan - Functional
           Page 10- 10









          Policy:          The county should coordinate                  Action
                           the development of an economic                Statement:        Focus economic initiative in or
                           development coalition inside, or                                close to villages (where the
                           available to the peninsula,                                     people are).
                           including, if appropriate, links
                           with local chambers of                        Action
                           commerce and/or a regional                    Statement:        Develop in the county, with
                           economic           development                                  local government assistance,
                           organization in          order to                               sample zoning regulations which
                           coordinate economic                                             allow for planned and
                           development efforts within and                                  compatible mixed uses.
                           outside of the peninsula.
                                                                         Action
          Action                                                         Statement:        Promote the establishment of
          Statement:       Economic development sub-                                       unified, local telephone and
                           groups should be established (or                                cable     services        providing
                           if in existence-linked) to focus                                peninsula-wide access without
                           on    tourism        development,                               toll rates and the inconvenience
                           industrial development, small                                   thereof.
                           business / entrepreneurial skills,
                           intergovernmental cooperation                 Action
                           and any other topics deemed                   Statement:        Investigate the expansion of gas
                           appropriate by the coalition.                                   utility service areas in select
                                                                                           portions of the county as well
          Action                                                                           as    "three-phase"        electrical
          Statement:       Local     jurisdictions        should                           service.
                           become part of the coalition,
                           providing resource support for                Action
                           marketing efforts.                            Statement:        Plan    physical      infrastructure
                                                                                           investment to          phase and
          Action                                                                           coordinate it among all local
          Statement:       In cooperation with the MSU                                     jurisdictions.
                           Cooperative Extension Service,
                           coalition     members should                  Policy:           Promote well-designed business
                           continue leadership training and                                facilities which blend with the
                           team building.                                                  environment and are not overly
                                                                                           suburbanized in appearance.


          Issue:                                                         Action
             Much of the commerce activity in the                        Statement:        Provide technical assistance to
          peninsula is scatteredand not particularly well-                                 local governments and promote
          served by proper services.                                                       the implementation of the new
                                                                                           model sign ordinance which
                                                                                           minimizes the impact of signs on
          Policy:          At the peninsula level, identify                                thelandscape.
                           business and residential centers
                           for concentrated development                  Action
                           that provides efficiency in                   Statement:        Develop      local    site design
                           energy and service delivery.                                    guidelines consistent with the
                                                                                           Grand Traverse Bay Regional



          The Leelanau General Plan - Functional View                                                      Economic Development
                                                                                                                      Page 10- 11








                          Development Guidebook, to                Action
                          promote the establishment of             Statement:     Upgrade and redevelop existing,
                          native vegetation, wildflower                           a g i n g    c o m m e r c i a I
                          fields, and native grasses over                         establishments and centers to
                          sod yards in commerce centers.                          arrest deterioration and maintain
                                                                                  the appearance of the peninsula.
          Action
          Statement:      Integrate adequate parking with          Action
                          other   access      management           Statement:     Promote local regulations for
                          techniques to minimize                                  small-scale development in
                          congestion and visual impact of                         service centers to blend with the
                          commercial      and     industrial                      rural character of the peninsula.
                          development.
                                                                   Action
          Action                                                   Statement:     Design commercial centers
          Statement:      Coordinate prohibitions of strip                        toward being pedestrian-friendly
                          development with local zoning                           with    natural     landscaping,
                          regulations.                                            pathway and amenity tie-ins as
                                                                                  illustrated in the Grand Traverse
                                                                                  Bay Region Development
                                                                                  Guidebook.






































          Economic Development                                                The Leelanau General Plan - Funcdonal View
          Page 10- 12









                                                           Chapter 11
                                         HUMAN SERVICES AND FACILITIES



         INTRODUCTION                                                 ISSUES


            Within the context of the Leelanau General                Lack of Reliable Data
         Plan, human services and facilities include an
         array of services typically aimed at providing                  Historically, a significant issue facing the
         specialized assistance to individuals and                    county in the delivery of human services has
         families to improve their productivity as                    been the lack of reliable data regarding
         members of society and/or improve their                      particular human service needs. This has been
         quality of life. These services are characterized            in large part due to the lack of a reliable and
         by programs for the elderly, employment                      comprehensive demographic profile of the
         services,    financial    assistance,      domestic          peninsula, and the resulting limited baseline
         violence intervention, shelters, mental health               data upon which services can be delivered and
         services,    and    similarly    related     support         evaluated. As a result, it has not been clear as
         assistance.                                                  to: 1) the extent to which the human services
                                                                      needs of the peninsula are being met; 2) the
            Human services and facilities are critically              degree to which duplication of services
         important to the peninsula for a variety of                  between agencies may exist; 3) whether the
         reasons. First and foremost, these services and              services currently provided are in fact
         facilities provide assistance to individuals,                necessary; and 4) whether the services
         children and families in need. Availability of a             currently being delivered are effective.
         'safe haven' and/or helping hand is often
         necessary for individuals and/or families who                   The recent completion of the Leelanau
         are not capable of resolving a conflict or crisis            County Human Services Review (March 1993),
         themselves. And, the assistance provided by                  however, prepared by the Northwest Michigan
         these services and facilities has the potential              Council of Governments, ends a substantial
         to benefit the peninsula beyond just those                   portion of the data drought. This study
         receiving the services. Many of the services                 compiles all of the relevant 1990 census data
         offered enable individuals to become active                  and displays it in both tables and maps. The
         and productive residents of the peninsula and                mapped data is largely displayed at the block
         thus limit the demand on revenues for long                   group level. In addition, a comprehensive
         term public assistance due to unemployment,                  survey      of human services              provider
         disabilities,   mental      illness,   and      other        organizations was conducted. The results are
         difficulties. This can result in both a higher               displayed in a series of tables. The report finds
         level of services delivered as well as more                  very little duplication of services, but many
         revenues available for other needed services                 gaps and a need for future collaboration in
         and programs. The peninsula's human services                 service provision to improve effectiveness and
         and facilities are also available to serve the               efficiency.
         many migrant workers who temporarily reside
         in the peninsula during the growing and
         harvesting seasons and whom, by their                        Limited Fiscal Resources
         transient nature, may be in particular need of
         special services and programs. Without these                    Also impacting the current delivery of
         services, agricultural operations could not be               human services on the peninsula is the
         competitive.                                                 comparatively limited amounts of money
                                                                      available for such programs. Leelanau County
                                                                      significantly trails behind the state in per capita


         The Leelanau General Plan - Functional View                                            Human Services and Facilities
                                                                                                                  Page 11-1









                              Map 11-1                             The county received only between one-haff
                        PER CAPITA INCOME                          and two-thirds of the per capita allocations for
                                                                   human services compared to the statewide
              Leelanau County@                                     average.
                 Michigan

                 $9,SS7-$11,81S

                 $11,81641IZ964                                       Many of the challenges being faced by the
                 $112,96_-$114.070                                 elderly   are,   to   varying    degrees,     also
                 $14.071-$181184                                   confronting other special populations of the
                                                                   peninsula. While many senior citizens are
                                                                   physically disabled, so are many other younger
                                                                   persons. Insufficient income to meet living
                                                                   needs often faces the elderly on a fixed
                              g-111111iIIII                        income, but it also affects those persons
                                                                   untrained for the job market or recently laid
                                   PIN
                                    III ;1 11 111
                                    it I 1 1, ItI III fill! 1!111,
                                                                   off. While the very aged may be more prone to
                           11 Jul 1 !101 NIM'111 11 1 JJ In
                                                                   mental illness, anyone can experience mental
                                                                   distress brought about by societal or personal
           In
                                                                   pressures.

              UNU ';;P. if


                                                                   Drug Abuse, Child Care and
                                            SCAU :="O  N I
                                                                   Domestic Violence
                                           NOVEMBEIR. 1992
                                                                      Drug abuse counseling, child care needs,
                                                                   and domestic violence present increasing
                                                                   demands upon human services systems. The
          allocations by the state to the county for               rural character of the peninsula has not,
          human services. In fact, the county received             contrary to what is often believed, buffered
          only between one half and two thirds of the              the peninsula from these challenges. The
          per capita allocations for human services                increasing number of single parent households
          compared to the statewide average. Map 11 - 1            is   placing    extraordinary    pressures     for
          shows per capita income by municipality.                 affordable and convenient day care facilities.
                                                                   Drug abuse and domestic violence are now
                                                                   openly discussed and recognized as far too
          Needs of Special Populations                             common occurrences for the welfare of the
                                                                   persons involved and the society as a whole.
             One group significantly affected by the
          scope and quality of human services are area                As Working Paper #11 on Demographics
          senior citizens. See Map 11-2. This population           documents, there are wide disparities in
          is commanding a growing share of the                     income and family situations. Public programs
          national, state, and peninsula population. The           and services designed to help individuals,
          elderly are faced with numerous day-to-day               children, and families meet a short term need
          challenges which, in turn, challenge the human           can dramatically improve the ability and
          services delivery system. Economic stability,            likelihood of self sufficiency thereafter. Over
          health and nutrition, transportation and                 time, the income gap should narrow (or at
          mobility, and self sufficiency are all very real         least not widen further) if human service
          and pressing issues which must be addressed.             programs are effective.



          Human Services and Facilities                                       The Leelanau General Plan - Functional View
          Page 11-2










         A FRAMEWORK FOR FUTURE POLICY                           services.


            The foundation for the future delivery of                The extent to which the private sector can
         human services on the peninsula must be                 deliver human services in a cost effective
         based upon valid baseline data and an                   manner in coordination with public agencies
         understanding of specific human service                 should be continually evaluated and monitored
         needs. Services should be based upon clearly            and,    where     appropriate,      encouraged.
         identified needs, and to this end detailed              Privatization of services, along with the
         demographic profiles should be developed,               examination of alternative funding structures
         needs identified, and services monitored                for services should be examined as the
         according to both quality and trends in                 opportunity permits.
         demand.


            The refinements to the peninsula's human             HUMAN SERVICES AND FACILITIES
         service delivery system, in response to this            POLICIES AND ACTION STATEMENTS
         base data, should direct special attention to
         the needs of children and the elderly. The                  The    following    policies    and     action
         peninsula's future largely rests with the health        statements are intended to establish the
         and vitality of its children. Yet, it is the            blueprint       f to r the    General        Plan
         peninsula's elderly who are the fastest growing         recommendations for the future of the
         segment of the population. The peninsula's              peninsula's human services and facilities.
         human service delivery system should respond
         to the particular needs of these populations
         through collaborative programs. Similar efforts
         should be pursued in regard to services for                                 Map 11-2
         drug abuse, domestic violence, mental health,            PERCENT OF POPULATION AGE 65 & OVER
         early education, and other human services
         needs, including special programs for migrant
         workers.


            Special emphasis should be directed to the
         basic health and nutrition needs of the entire                    S. I - I I 2N.
         peninsula before other services can be
         effective and worthwhile. Affordable and
         convenient access to health and nutritional                       14.01-30.0%
         care must become paramount.                                       30.01-41.W.

            Improvements to the peninsula's human                                                    1! 1!
         services delivery system should be based upon                                     it          i. i i
                                                   -agency
         increased interjurisdictional and inter
         coordination and, more importantly, on                                               11111 1111
         collaboration. This collaboration should be
         particularly aimed at preventing unnecessary
         duplication of services and creating the most
         cost effective service delivery system. Other
         efforts should focus on periodic review and
         monitoring to identify unmet needs, and to
         finding the most appropriate organization(s) to                                          NOVE-BER. 1992
         address the need, as well as ways in which
         resources can be redirected to higher need


         The Leelanau General Plan - Functional View                                      Human Services and FaRl-ities
                                                                                                          Page 11-3









           Issue:                                                         Action
               Duplication andlor gaps in human services                  Statement:       A comprehensive identification
           and facilities.                                                                 of the special needs of children
                                                                                           on the peninsula should be
           Policy:          Stewardship of public resources                                periodically conducted along
                            dictates that the county and                                   with an assessment of available
                            local governments and human                                    services and delivery systems in
                            service agencies should exert                                  order to compare the special
                            every possible effort to make                                  needs of children with services
                            sure that there is a reasonable                                delivered.
                            match between the needs and
                            services; i.e., services should be            Action
                            based on quantifiable needs.                  Statement:       Those governments and other
                                                                                           human services organizations on
           Action                                                                          the peninsula which provide
           Statement:       A demographic profile of the                                   services to children should
                            needs     of    citizens     on   the                          identify, review, and evaluate
                            peninsula for human services                                   alternatives to best match needs
                            and facilities should be made                                  and services to optimize use of
                            available to all human service                                 resources.
                            organizations as a benchmark
                            against which to develop,                     Action
                            deliver,     and      monitor     the         Statement:       In considering the appropriate
                            effectiveness of their programs.                               service mix, state guidelines
                                                                                           should be considered along with
           Action                                                                          a special emphasis placed on
           Statement:       An organized method of periodic                                those initiatives which are
                            review of all human service                                    preventative in nature, such as
                            p r o g r a m s    s h o u I d    b e                          pre-    and     post-natal      care,
                            collaboratively implemented to                                 parenting skills, basic health and
                            ensure the most cost effective                                 nutrition,     teen      pregnancy
                            and comprehensive delivery of                                  prevention. These initiatives will
                            needed services.                                               be the most cost-effective in the
                                                                                           long-term.
           Action
           Statement:       Any     resources devoted to                  Issue:
                            program areas designated as                      Special needs of the elderly.
                            "over-met' should be redirected
                            to service areas identified as                Policy:          Provide human service
                            "under-met.                                                    programs, sponsored by
                                                                                           Leelanau County, that will
           Issue:                                                                          facilitate personal development
              Special needs of children.                                                   and self-sufficiency of all county
                                                                                           residents. Such programs should
           Policy:          County and local governments                                   assist individuals to achieve
                            recognize that children are the                                their f ull potential and protect
                            future of the county and should                                and enhance their personal
                            make every effort to see that                                  health and enjoyment of life.
                            their basic needs are met.




           Human Services and Facilitfes                                              The Leelanau General Plan - Functional View
           Page 11-4









         Action                                                                              requirements, such as senior
         Statement:        Recognize        the    social      and                           citizen housing, can be projected
                           financial capability among                                        and planned.
                           county residents and support
                           the Board of Social Services in                 Action
                           identifying and assisting those in              Statement:        Identify ways in which Leelanau
                           need to grow toward economic                                      County can become more
                           and social independence and                                       attractive to senior citizens.
                           dignity.                                                          Specifically      investigate the
                                                                                             feasibility of establishing an
         Action                                                                              environment for "continuum of
         Statement:        Provide services that will permit                                 c a r e "   which         responds
                           senior citizens to remain in their                                realistically to the process of
                           own homes and to minimize                                         aging in providing the needed
                           their dependence on institutional                                 and     desirable physical and
                           care. Programs such as nutrition                                  service infrastructure.
                           programs, homemaker aid,
                           public transportation (BATA),                   Issue:
                           respite care and others are                         The needs of physicafly challenged county
                           appropriate means for achieving                 citizens.
                           this policy.
                                                                           Policy:           Leelanau County should seek to
         Action                                                                              minimize       the     barriers to
         Statement:        Provide preventive services for                                   economic and other self-
                           the elderly, including but not                                    sufficiency        by     physically
                           limited to contact, physical                                      challenged        individuals to
                           facilities, and congregate meals.                                 promote self-sufficiency by all
         Action                                                                              appropriate means.
         Statement:        Seek      the     involvement of
                           volunteers,       community-based               Action
                           organizations and senior citizens               Statement:        Examine existing county
                           themselves in mounting service                                    programs and identify and
                           and educational programs.                                         eliminate   barriers to access or
                                                                                             use of       such programs by
         Action                                                                              physically challenged individuals.
         Statement:        Establish funding guidelines that
                           consider state, county and local                Issue:
                           appropriations as well as fee                       Special needs of migrant agricultural
                           and charitable gift revenues,                   workers.
                           recognizing that while initial
                           county matching contributions                   Policy:           Recognition should be given that
                           may      be     appropriate,        the                           migrant      workers       are     key
                           responsibility for operational                                    members        of    the     county's
                           funding of senior citizen centers                                 agricultural     community         and
                           should remain at the local level.                                 attention should be given to
                                                                                             their needs during their annual
         Action                                                                              residence in the county.
         Statement:        Develop a data base of clientele
                           for senior citizen programs from                Action
                           which programmatic                              Statement:        A task force representing the



         The Leelanau General Plan - Functional View                                                   Human Services and Facilities
                                                                                                                          Page 11 -5







                             m a j o r   interests          a n d        Policy:          Provide a range of mental health
                             organizations should              be                         services which address the
                             established to identify the                                  mental health needs of Leelanau
                             special housing, health care and                             County residents and coordinate
                             human      service     needs of                              programming with other state,
                             migrants and the ways in which                               county, and local agencies
                             existing programs could be                                   prov *iding similar services or
                             strengthened to cost-effectively                             serving common clients.
                             meet those needs.
                                                                         Action
            Issue:                                                       Statement:       Conduct an annual review of the
               Domestic violence prevention and -shelter                                  community. mental health plan
            needs.                                                                        and    ensure      a    reasonable
                                                                                          relationship between the plan
            Policy:          Every county citizen should have                             and the annual appropriations
                             the right to a safe domestic                                 and    needs for        community
                             environment.                                                 mental health services on the
                                                                                          peninsula.
            Action
            Statement:       Information should be provided              Issue:
                             to county citizens as to where                  Pre-schoollheadstart education
                             to find help in cases of domestic                e Programs for students of special needs
                             violence.                                           (including gifted and talented).
                                                                              *  Programs for minorities.
            Action
            Statement:       County and local governments                Policy:          The county, local jurisdictions
                             should     advocate harsher                                  and school districts should
                             -measures be established by the                              support and            encourage
                             state government for repeat sex                              p r o g r a m s              f o r
                             and/or domestic violence                                     preschool/headstart as well as
                             offenders.                                                   programs which provide a good,
                                                                                          basic education for low income,
            Action                                                                        high-risk, minorities, and
            Statement:       County and local governments                                 students requiring special needs
                             should cooperate with various                                (including gifted and talented
                             agencies to encourage provision                              children).
                             of safe havens from domestic
                             violence.                                   Action
            Action                                                       Statement:       The county, local jurisdictions
            Statement:       It should be recognized that                                 and schools should seek out and
                             substance abuse prevention is                                utilize all available funds and
                             also a very effective measure in                             facilities   to    provide     such
                             prevention of domestic violence,                             programs.
                             and that county and local
                             governments should support                  Action
                             efforts to prevent substance                Statement:       More emphasis should be placed
                             abuse.                                                       on educational programs which
                                                                                          stress early education for those
            Issue:                                                                        students of special needs.
               Mental health services



            Human Services and Facilides                                             The Leelanau General Plan - Funcdonal View
            Page 11-6










                                                          Chapter 12
  is                                                     LAND USE


         INTRODUCTION                                               development activity on the peninsula is the
                                                                    construction of new single family homes.
            Land use change is inevitable on the                    These are largely for seasonal occupancy
         Leelanau Peninsula. New homes, businesses,                 and/or occupancy primarily by new county
         public buildings, mineral extraction operations,           residents who work outside the peninsula.
         and agricultural operations (among other land              Large areas of land are being converted to
         uses) are likely and desirable. The issue is               residential use. The new businesses and other
         where, when, and what type of land use                     land use changes that will occur in response to
         change will occur. Also, are the necessary                 this trend will have a dramatic impact on the
         public services that will be required adequately           character of the peninsula for decades to
         in place to meet the needs of new                          come. It will be up to coordinated action by
         development? These basic growth                            county and local governments to guide this
         management issues are fundamental to                       new development so as to minimize
         achieving the desired balance between                      detrimental resource, safety, and visual
         economic development and environmental                     impacts. Part One of this plan describes the
         protection proposed by this plan.                          basic strategy for achieving these goals. This
                                                                    chapter focuses on specific policies and action
            As of 1993, the primary economic                        statements for addressing change on the

                             Map 12-1                                                   Map 12-2
                       LAND USE       COVER                                     AGRICULTURAL LANDS





                         0      5MI
                                                                                        0        5MI






                                                                                      N
















                 OPEN            AGRICULTURE     WETLAND
                 BARREN                                                         ORCHARD                OTHER
                 URBAN                           WATER                                                 AGRICULTURE
                                  FOREST





         The Leelanau General Plan - Funcdonal View                                                             Land Use
                                                                                                               Page 12-1








           Leelanau Peninsula (See Working Papers #5                 Indiscriminate loss of natural resources will
           and 10 for more background information).                  have a devastating impact upon a tourism-
                                                                     based economy.


           ISSUES                                                        The dramatic effects of land use on the
                                                                     character of the peninsula underscores the
           Land Use Change                                           fundamental necessity that future land use and
                                                                     development patterns be purposely planned
               Land use patterns dramatically shape the              and guided rather than left to evolve by
           character of the Leelanau Peninsula and the               chance.
           quality of life it offers. Land use affects the
           character of the peninsula visually, financially,
           and environmentally. As land is developed, the            The dramatic effects of land use on the
           appearance of the parcel, the surrounding                 character of the peninsula underscores the
           vista, and the transportation corridor within             fundamental necessity that future land use and
           which it is located, are altered. This alteration         development patterns be purposely planned
           is most commonly one from a more natural                  and guided rather than left to evolve by
           state to a more urban or suburban appearance.             chance.
           As land is developed, natural resources
           associated with the development area are
           often lost or reduced in quality and/or quantity.
           As land is developed, the new use increases                   The Leelanau Peninsula can be         generally
           demands upon existing public services and                 described as a water wonderland with a
           infrastructure. The cumulative effect is often a          landscape dominated by rolling terrain, crop
           rise in taxes to provide the necessary                    and    orchard    farms,    open spaces and
           additional services and/or infrastructure. Once           woodlands. See Maps 12-1 and 12-2. The
           land is developed, it rarely reverts to a less            western half of the peninsula is dominated by
           intensive use and, where natural renewable                woodland areas, inland lakes and associated
           resources are at stake such as prime farmland,            wetland environments, and a small spattering
           the conversion is forever.                                of farms. The eastern half of the peninsula is
                                                                     dominated by farmland with intermixed
                                                                     woodland and wetlands. Within this patchwork
           The primary economic development activity on              of rural life rests a few settlement areas of
           the peninsula is the construction of new single           more urban character, including the Villages of
           family homes.                                             Suttons Bay, Northport, and Empire, and the
                                                                     small communities of Leland, Glen Arbor,
                                                                     Cedar, Maple City, Greilickville and the Grand
                                                                     Traverse Band Reservation Area.
              The Leelanau Peninsula is particularly
           vulnerable to the potential negative impacts of               The Leelanau Peninsula land use pattern is
           land use changes and development. Poorly                  a   reflection of the competing land use
           located development often stands out as a                 demands placed upon its landscape. There is a
           "sore thumb" in contrast to the peninsula's               wide range of population density. See Table
           rural and scenic character. Taxes are already             12-1. The peninsula has traditionally been
           considered "too high" by area residents and,              dominated by vast areas of crop and specialty
           as previously discussed in Chapters 2 and 3,              farming with equally vast areas of special
           the cost for delivery of public services is               natural    resources,    including     woodlands,
           already somewhat naturally higher than                    wetlands, shorelines, dunes, lakes, and
           elsewhere due to the constraints brought                  hillsides. The growth of the tourism industry
           about    by    the   peninsula's      geography.          has challenged the integrity of the agricultural     (is

           Land Use                                                              The Leelanau General Plan - Funcdonal View
           Page 72-2









          and natural resource base of the peninsula. Not                drives nearby farmland property assessments
          only has the tourism industry encroached upon                  higher and increased property taxes shortly
          the quantity and quality of these resources but                follow. The farmer is faced with a rising
          the growth of the peninsula's population has                   property tax bill without the benefit of
          complicated the effective protection of these                  increased agricultural income to offset the
          resources. Further, population growth has led                  disparity. Ultimately, the farmer is pressured
          to increased conflicts between the peninsula's                 into selling off small lot splits from his original
          year-round land use needs and activity patterns                acreage to increase his income, thereby
          and those of the tourism industry. The nature                  offsetting the rising taxes. Once started, this
          of this competition can be seen in its spoils as               sprawl cycle increases in intensity and rate.
          trends now leave evidence that a battle has                    See Figure 2-2.
          been waging for some time with peninsula-
          wide costs.                                                        The resulting pattern of encroaching
                                                                         residential development fragments farmland
                                                                         and other resource acreage. The smaller
          The one time peninsula-wide pattern of large                   farmland parcel is less economically viable. The
          acreage farmlandparcels has been replaced by                   smaller the acreage of other natural resources,
          extensive encroachment of sma# 5 or 10 acre                    such as woodlands, the less valuable they
          parcels for residential purposes. Once this                    become as habitat for wildlife, as elements of
          residential pattern is started, it fuels itself                peninsula rural character, or as income
                                                                         generators for managed timber operations.
                                                                         With the loss of the farmland and other natural
                                                                         peninsula resources goes an element of the
          Residential Sprawl/Development Pattern                         peninsula's history, as well as its natural and
                                                                         cultural uniqueness.
              Possibly the most devastating impact of
          this battle has been the evolving pattern of
          sprawl and associated dispersed population.                    The traditional large lot zoning scheme (a
          The one time peninsula-wide pattern of large                   minimum lot size of 10 acres or less), often
          acreage farmland parcels has been replaced by                  employed to protect agricultural lands, has
          extensive encroachment of small 5 or 10 acre                   failed miserably across the nation. Yet ft is
          parcels for residential purposes. Once this                    widely practiced throughout the county.
          residential pattern is started, it fuels itself. The
          encroachment of residential development

                                                                              The traditional large lot zoning scheme (a
                                                                         minimum lot size of 10 acres or less), often
                                Table 12-1                               employed to protect agricultural lands, has
                 POPULATION PER SQUARE MILE                              failed miserably across the nation. Yet it is
                              1940-1990                                  widely practiced throughout the county. More
                                                                         often than not, ten-acre parcels are created for
                       Leelanau        Benzie     Grand Trav-            the sole purpose of establishing a residence.
                                                      erse               The result is that one (or two) acres of the ten-
           1940            24.2         24.7           50.4              acre lot are used for a house and yard and the
           1960            25.0         26.0           62.0              remaining eight acres is left idle. The net result
           1960            27.0         25.0           73.0              is a loss of ten acres of rime farmland (or
           1970            32.0         27.0           85.0              woodland,        or   mineral      resources). The
           1980            41.0         34.8           117.8             cumulative impact on productive resource land
           1990            48.0         38.9           139.0             is affected, though it does protect a certain
                                                                         amount of wildlife. See Figure 12-1 and 12-2.
                         Source: Decennial Census



          The Leelanau General Plan - Functional View                                                                   Land Use
                                                                                                                       Page 12-3









                              Figure 12-1                                              Figure 12-2
                 1 SECTION, FIRST DIVISION INTO                             1 SECTION, SECOND DIVISION
                        TEN ACRE PARCELS                            4 PARCELS FROM EACH TEN ACRE PARCEL








                                                                              r-M I



















                                                                                     FFF







              The resultant lot pattern dramatically               from the visual experience one has as he or
          increases the cost of public services and                she moves through the community along its
          emergency response times, as increased                   roadway      corridors.    The    experience     is
          amounts of infrastructure need to be                     dramatically reshaped when the visual
          constructed and maintained, and greater                  foreground is dominated by strip residential
          distances have to be traveled to address the             development.
          needs of relatively few.

              Also, this      lot pattern has greatly              Not only does this development pattern
          contributed to the demise of the peninsula's             conflict with the safe and efficient movement
          rural character. When developed, these                   of traffic due to increased driveway access
          individual lot splits are often characterized by         points and turning patterns, but views of the
          residences lined up along the county road                rural landscape are effectively hidden and
          frontage. Not only does this development                 replaced with homes, front yards, garages,
          pattern conflict with the safe and efficient             mailboxes, and driveways.
          movement of traffic due to increased driveway
          access points and turning patterns, but views
          of the rural landscape are effectively hidden
          and replaced with homes, front yards, garages,              Though this pattern of development has
          mailboxes, and driveways. The sense of rural             been debilitating to the character of the
          character within a community is largely derived          peninsula, the symptoms of the past struggle


          Land Use                                                             The Leelanau General Plan - Funcdonal View
          Page 12-4









          show up elsewhere as well. Increased                      be made; 3) counterproductive policies
   0
          environmental degradation has become evident              regarding long term agricultural, open space,
       )  as more and more residential development has              and natural resource preservation; 4) the
          occurred along the peripheries of and within              absence of policies or regulations regarding the
          the peninsula's natural resource areas. This is           preservation of sensitive natural resources; and
          particularly evident along shoreline areas and            5) the inclusion of policies which generally
          hillsides and in some wetlands.                           result in the loss of the peninsula's rural and
                                                                    historic character through encouragement of a
          Commercial and Industrial Development                     dispersed development pattern.

             Similarly, commercial development has
          occurred in locations previously dominated by             The above conditions and trends have largely
          open spaces and a strong pastoral setting.                been a result of an historically weak land use
          Though the peninsula's principal commercial               planning and zoning program throughout the
          development is located within village areas, it           peninsula.
          has begun to encroach into the more rural
          settings. This disrupts the resource value of
          surrounding lands and serves as a magnet
          drawing other nonresidential uses. This spot                  Accordingly,     locally    adopted      plans
          commercial development can be seen along                  (including the prior county plan and zoning
          principal roadway corridors as well as within             ordinance) have accommodated development
          some of the more interior areas of the                    while doing little in the way of managing
          peninsula. In a few cases, development was                growth on the peninsula. See Table 12-2.
          for industrial land uses. This encroachment has           While some of the locally adopted plans
          the effect of reducing the sense of rural                 provide direction in the type and location of
          character, increasing the fragmentation of                future land uses, none of the locally adopted
          valuable natural resources, increasing traffic            plans address the appropriate rate and timing
          demands and hazards along roadways, and                   of new development, adequacy of public
          generally disrupting the traditional land use             services at the time new development
          pattern which had previously been supportive              becomes operational, or the total amount of
          of its agricultural, open space, and natural              appropriate new development.
          resource foundation. It also is in areas not
          easily provided with public services.
                                                                    Locally adopted plans have accommodated
          Weak County and Local                                     development while doing little in the way of
          Planning Programs                                         managing growth on the peninsula.

             The above conditions and trends have
          largely been a result of historically weak land
          use planning and zoning program throughout.               Weak County and Local Zoning Programs
          Four of the 14 local municipalities have not
          formally adopted comprehensive or master                      Thanks to being left to a peaceful rural
          plans. Those plans that have been adopted by              existence for so long, the vast majority of the
          other municipalities are often characterized by:          peninsula is zoned into agricultural districts,
          1) weak planning processes, whereby the                   but the predominant minimum lot size in these
          general public had minimal effective input into           agricultural districts is now three acres or less.
          the preparation of the plan; 2) limited mapping           See Map 12-3. This zoning scheme provides
          of local conditions, thereby increasing the               little in the way of effective farmland
          complexity of analyzing critical local trends and         protection. Few of the local zoning ordinances
          conditions upon which recommendations can                 incorporate special development techniques



          The Leelanau General Plan - Functional View                                                         Land Use
                                                                                                              Page 12-5









                                                                                                                       Table 12-2
                                                                                                    LOCAL PLAN COMPONENTS



                                     Bingham          CenterWit       Cleveland      Elmwood        But M           village of     Glen Arbor       Kasson          Lclamiu        Leland          Vijbg of        Scion
                                                                                                        pi                                                                                                               ip       Sultons Bay    Villg
                                     To.ashi p        Township        Township       Township       Township        Empire         Township      Township           Towashi        Township        N orth;ort      Townsh         Township       Suttons Bay

            Adoption/
            Major Update             1979             1979            1985           1976             1993          19W              1981           NIA                                                 7          1,993          1992           1968
                                                                                                                                                                    1990           199,            19,

            Tit Between
            Plan and Zoning                                           Fair or                       Fair Or                        fair or                          Weak           Fair or         Weak            Fair or        Fair or        Psi or
            Ordiciance/              Weak             Weak            Better         Weak           Better          Weak           Better           N/A                            Better                          Better         Better         Better
            Basis in Law

            Community                Public           Public          Survey         public         sur@ey &        Public         Survey &                         Public         su@cy A         Survey &        Sumcy &        Public         Public
            Input                    Hearing          Hearing    Pub.Hcaring         Hearing     Pub.Hcaring        Hearing        Pub.Hearing      N/A             Hearing    Pub.Hearing Pub.Hearing Pub.Hcaring                Hearing        Hearing
            Goalsand                 Fair or          Fair or         Fair or                       Fair or         Fair or        Fair or                          Fair or        Fair or                         Fair or        Fair or        Fair or
            Objectives               Better           Better          Better         Weak           Better          Better         Better           N/A             Better         Better          Weak            Better         Better         Better

            Supporting/                                                              Fair or        Fair or         Fair or        Fair or                          Fair or
            Technical Data           Weak             Weak            Week           Better         Better          Better         Better           N/A             Better         Weak            Weak            Weak           Weak           Weak

            Mapped                                                                   Fair or        Fair or         Fair or        Fair or                                                                                                       Fair or
            Data                     weak             Weak            Weak           Better         Better          Better         Better           N/A             Weak           Weak            Week            Weak           Weak           Better

            IAnd Use by                                                                             Fair or                        Fair or                          Fair or        Fair or         Fair or         Fair or        Fair or        Fair or
            Type Policies            Weak             Weak            Weak           Weak           Better          Weak           Better           NIA             Better         Better          Better          Better         Better         Better

            Land Use by
            Location                                                  Pair or        Fair or        Fair or         Fair or        Fair or                          Fair or        Fair or         Fair or         Fair or        Fair or        Fair or
            Policies                 Weak             Weak            Better         Better         Better          Better         Better           NIA             Better         Better          Better          Better         Better         Better

            Rate of
            Development
            Policies                 Weak             Weak            Weak           No             Weak            Weak           Weak             NIA             No             Weak            Weak            No             Weak           No

            Timing of
            Development
            Policies                 Week             Weak            Weak           No             Weak            Weak           Weak             N/A             No             Weak            Weak            No             Weak:          No

            Total Scope Of
            Development              Weak             'W. k                                         Weak            Weak           Weak                                            Weak            Weak            Weak           Weis
            Policies                                                  weak           No                                                                             No




                         which are geared toward effective resource                                                                        The extreme variability among local zoning
                         protection and that are specifically provided for                                                                 ordinances on the peninsula acts to artificially
                         in the state zoning enabling acts. See Table                                                                      fragment the peninsula and upsets the
                         12-3. These techniques include: 1) approval of                                                                    geographic and visual wholeness which
                         special land uses within a particular district                                                                    typifies the peninsula and its local
                         provided they undergo a special review                                                                            municipalities.
                         procedure and meet special and more stringent
                         standards than otherwise applied to "uses by
                         right"; 2) the submittal of project site plans for
                         review and approval prior to the establishment                                                                          Perhaps the problems with the peninsula's
                         of the development in question; and 3)                                                                            planning and zoning programs are best
                         "planned unit development" regulations which                                                                      illustrated by the fact that the locally adopted
                         encourage                    resource                and           open             space                         plans and zoning ordinances do far more to
                         preservation                 opportunities                         through             more                       encourage                       uncontrolled                        growth                    and
                         flexible land use and site development than is                                                                    development than to constructively shape and
                         normally permitted by traditional district                                                                        guide the growth. For example, if all lands
                         standards.                                                                                                        within the county were developed according to
                                                                                                                                           "by right" standards as stipulated in the
                                                                                                                                           respective zoning ordinances of the peninsula's
                                                                                                                                                                                                                                           I
                                                                                                                                                                                                                                         T


































































                         Land Use                                                                                                                                   The Leelanau General                     in - Functfonal View
                         Page 12-6









           municipalities as of 1989, the resulting                       market driven forces.
           "buildout" population for the peninsula would
           increase from its 1990 population of 16,527
           to nearly 285,000! This figure takes into                      Perhaps the problems with the peninsula's
           consideration that some lands are not                          planning and zoning programs are best
           developable (wetlands, etc.) and/or need to be                 illustrated by the fact that the locally adopted
           set aside for right-of-way purposes. See Table                 plans and zoning ordinances do far more to
           12-4. While it is unreasonable to assume                       encourage uncontrolled and rampant growth
           development of this magnitude will happen                      and development than to constructively shape
           anytime soon, if ever, it is indicative of the                 and guide the growth. For example, if aff lands
           permissiveness of local zoning regulations.                    within the peninsula were developed according
                                                                          to "by right" standards as stipulated in the
               Not only are the local zoning ordinances                   respective zoning ordinances of the peninsula's
           characterized by a lack of adequate land use                   municipalities,       the resulting "buildout"
           and growth management controls, but extreme                    population for the peninsula would increase
           variability among local zoning ordinances acts                 from its 1990 population of 16,527 to nearly
           to artificially fragment the peninsula and                     285, 000!
           upsets the geographic and visual wholeness
           which typifies the peninsula and its local
           municipalities.     Unnecessarily        inconsistent              These problems, while characteristic of
           standards encourage fragmented and disjointed                  local plans and zoning ordinances, also apply
           development          patterns,     and      establish          equally to the previous county plan and zoning
           inappropriate or unplanned growth areas due to                 ordinance.

                                Map 12-3
               PENINSULA-WIDE ZONING PATTERN                              The population of the peninsula is expected to
                                                                          increase by nearly 100% by the year 2020.


                                  0       5MI
                                                                          Lack of Subdivision Regulations

                                                                              The lack of common peninsula-wide lot
                                                                          split    or   subdivision      ordinances       further
                                                                          documents          the     peninsula's         limited
                                                                          effectiveness at managing land divisions and
                                                                          development. The lack of such ordinances
                                                                          provides opportunities for inappropriately
                                                                          shaped lots, unbuildable lots, lots with
                                                                          inadequate drainage and other public services,
                                                                          lots without adequate access, lots which
                                                                          unnecessarily fragment important resource
                                    -Q                                    areas, and other undesirable conditions. Many
                                                                          examples can be found around the peninsula.
                                                                          (See examples on the following pages).


                            ZONING DISTRICTS
                      AGRICULTURAL        RESIDENTIAL                     Cumulative Impacts of Current Trends

                      COMMERCIAL/         RECREATIONAL/
                       INDUSTRIAL         GOVERNMENTAL                         Current trends have been destructive to the
                                   EXTRACTIVE                             peninsula and the costs associated with past



           The Leelanau General Plan - Functional View                                                                   Land Use
                                                                                                                        Page 12-7









                                                                                     Table 12-3
                                       1989 LOCAL LAND AREA BY ZONING CLASSIFICATION (IN ACRES)


                          Bingham Centerville Cleveland Elmwood Empire Empire                      Glen    Kasson Leelanau Leland Northport Solon Suttons Sutton
                            Twp-        Twp-          Twp-        Twp.         Twp.    Village     Arbor    Twp.         Twp.    Twp.      Village     Twp.     Bay           Bay
                                                                                                   Twp-                                                         TwP.1    Villaqe
        Agriculture         12,963     16,188         9,115       9,096        10,009     0        1,165   20,082 21,414 13,693               0       19850     15,101        0
        Resklentlal,.25       0           0            0          230          0          63         0        0          0           0        0          0           0        63
        acre lots or less
        Residential. .26      0         1,207         873         3,460        70         160       698       0          0        1'1 99      347        193    1193          275
        to .50 acre lots
        Residendal-51       Z189          0           998           0          1,756      0         831      224         0           0        522        0           0        63
        to 1.00 acre lots
        R.esidential,         0           63           0            0          0          0         798       0          2646        0        0          0           0        0
        1.01 to 2.00

        acre lots
        Residential,          0           0            0            0          0          0          0        0          359         0        0          0           0        0
        2.01 acre or
        areater lots
        General              122          4           170         216          501        224        70      452         33          89       83         26          52       77
        Commercial
        Resort/               0         236           839         182          1,062      34        281      829         173         0        22         66          0        0
        Recreation
        Commercial
        Industrial           43           0            0            0          0                              0     1    170         81       41         0
     1. Based on the County Zoning Ordinance then in effect in the Township.
     2. This figure does not include the appro)dmately 1,248 acres zoned for.extractive land uses.


                                                                    Source: Leelanau County Planning Department












                                                                                     Table 12-4
                                                                       1989 BUILDOUT ANALYSIS




     Buildout Bingham Centerville Cleveland Elmwood Empire Empire GlenAr- Kasson Leelanau Leland Northport                                               Solon Sutton$ Suttons
     Analysis             TwP-         TWp-           TWp-        Twp.         Twp. Village         bor     Twp.         Twp.        Twp.     Village    Twp.        Bay      Bay
                                                                                                   Twp-                                                              Twp.     Village
     1990                2,051         836            783         3,427        858       355       644      1,135        1,694       1,642    605        1,268       2,150    561

       opu on                                                             I                                                                                     I
     Buildout            18,793       29,919          16,533      65,5921 1    14,702   1,664     10,421   22,603        7,576   42,257       2,202      11,3441     37,275   2,507
     Population       1                                                        501
                                                                         F1', 0 6










     1. This figure takes into account a 1992 amendment which increased the minimum lot area in the Agricultural District from 12,500 square feet to I acre.




               Land Use                                                                                             The Leelanau General Plan - Funcdonal View
               Page 12-8









          growth and development of the peninsula will             both the county and its local municipalities
          continue to increase if current trends continue.         with the capabilities for effectively guiding the
          The population of the peninsula is expected to           future land use pattern and achieving the
          increase by nearly 100% by the year 2020. If             future vision desired in this plan.
          current trends continue, this population
          increase will show itself through a far more                The local plans of municipalities should
          accelerated rate of sprawl, land and resource            include policies regarding the planned future
          fragmentation, consumption of agricultural               land use pattern and public services delivery
          lands, disturbance of natural resource areas,            program which support comparable policies of
          degradation and destruction of sensitive                 the Leelanau General Plan. This plan recognizes
          resource areas, and traffic problems.                    that a degree of uniqueness is desirable to be
                                                                   maintained among local municipalities and that
             Accompanying this trend will          be the          there should be a corresponding degree of
          continued loss of the peninsula's rural                  flexibility between a local plan and the
          character as rural roadway corridors evolve              peninsula-wide plan. However, flexibility
          into linear urban forms with strip residential           should not weaken the foundation of mutual
          development and screening of those rural                 concern in the General Plan or otherwise
          qualities previously visible from the road. With         fundamentally diverge from what is considered
          the incremental loss of rural character, the area        most appropriate for the peninsula as a whole.
          tourism industry may well suffer as the                  In addition, each local plan should specify
          attraction drops off.                                    substantive policies addressing the issues of
                                                                   growth according to type, location, rate and
                                                                   timing, total amount, and the provision of
          Each local plan should specify substantive               public services to meet project needs prior to
          policies addressing the issues of growth                 new development becoming operational. Local
          according to type, location, rate and timing,            plans should be property specific while the
          total amount, and the provision of public                county plan will be area specific. An adopted
          services to Meet project needs prior to new              local plan that is compatible with the county
          development becoming operationaL                         plan could, if desired, be ratified as a part of
                                                                   the county plan (See Part Three).

                                                                      Agriculture, forest land and open space
             A sprawl development pattern on the                   protection should play a leading role within the
          peninsula will generate an increasing level of           planned future land use pattern of each local
          local unrest regarding present conditions and            Township. To this end, farmland and forest
          what the future may hold. Local planning and             land which is considered economically viable
          zoning programs will have an increasingly                on a long term basis and worthy of protection
          difficult time providing guidance in addressing          should be identified. Parcel size and soil
          pressing issues and the public will become               suitability should be key determinants in this
          increasingly vocal if competing land use                 identification.
          demands are not provided with the foundation
          or direction for successful coexistence.                   Once identified, model ordinances could be
                                                                   created to establish a regulatory program
                                                                   aimed at effective long term agricultural and
          A FRAMEWORK FOR FUTURE POLICY                            forest land protection. The premise of these
                                                                   model regulations should be the prevention of
          The Leelanau General Plan calls for a        major       land fragmentation where prime renewable
          shift in the peninsula's "mode of operation"             resources exist. These efforts should be
          regarding planning and zoning. The plan calls            accompanied by support for the current "right-
          for a far more aggressive initiative in providing        to-farm" legislation and for new state



          The Leelanau General Plan - Functfonal View                                                       Land Use
                                                                                                           Page 12-9








           legislation permitting the use of transfer and              ensure the long term viability of these
           purchase of development rights. Such a                      resources.
           program would prevent land fragmentation,
           while at the same time providing farmers the                    Equally proactive measures can be taken to
           opportunity to increase their income, by selling            preserve the peninsula's other open spaces. A
           the development rights of their farmland                    flexible model open spa     ce zoning ordinance
           property to landowners in more populated or                 can be prepared to provide more effective
           urbanized areas of the peninsula. The peninsula             means of preserving open spaces than the
           municipalities could push for a coordinated                 traditional large lot zoning approach. The
           peninsula-wide TDR programs once state                      model language should provide       for residential
           authority is in place.                                      development, while at the same time,
                                                                       preserving    important open spaces and
               The    county      should    assist in       the        minimizing the visual - impact       of the new
           development of any TDR or PDR program.                      residential      development.           Permitted
           Local plans and zoning ordinances would                     development would be directed toward those
           provide    for    adequate     buffers     between          open spaces not characterized by prime
           residential and resource areas, based upon                  farmland soils. Open space zoning can be
           uniform peninsula-wide standards, to better                 applied only to those areas where the


















                                                    IT
                                           @O_ @iz`r
                                                                                            4M
























           Condominium housing units.


           Land Use                                                               The Leelanau General Plan - Functional View
           Page 12-10









          preservation of renewable resources is not the                  and    carried    forward      into    local    zoning
          principal intent. For renewable resources,                      ordinances. Particular attention should be given
          preservation programs should be used instead.                   to new proposed resort developments. Resorts
                                                                          are commercial in nature and generate impacts
            Subdivision and lot split regulations should                  beyond      the     immediate          municipality.
          be employed by all municipalities to further                    Accordingly, such projects should be reviewed
          protect     large    parcels      f rom     premature           on a multi-jurisdiction basis including the
          conversion and to assure that adequate access                   municipality        in    question,        adjoining
          is provided. These should be based upon a                       municipalities, and county agencies.
          model uniform procedure peninsula-wide.
                                                                              Special consideration would be given to
              At the heart of open space, farmland, and                   providing affordable housing opportunities in
          forest land protection programs would be a                      close proximity and/or in association with full
          research and education initiative to protect                    service commercial centers including cultural,
          valuable productive lands. This would include                   child care, and employment opportunities.
          identifying effective resource management
          techniques, clarifying the destructive pattern of                   Strip residential development can be very
          large lot zoning, and explaining the benefits of                strongly discouraged through local land use
          open space zoning.                                              plans and regulations that encourage a more
                                                                          compact and less destructive settlement
              Residential development, in association                     pattern. Potentials for such developments can
          with open spaces or otherwise, would be                         be identified early through model project
          based upon efficient and economical use of                      review procedures. The Grand Traverse Bay
          land and the protection of renewable                            Region Development Guidebook is a useful
          resources. Development patterns should reflect                  guide to more appropriate site designs. The
          opportunities for varied housing types and lot                  same considerations equally apply to strip
          sizes. To this end, local plans and zoning                      commercial        development. Where new
          ordinances should be updated to reflect the                     commercial         development         cannot        be
          average development densities proposed by                       incorporated into the peninsula's existing
          this plan while still recognizing and responding                village centers, new small compact centers
          to particular local conditions. Local average                   should be provided consistent with local zoning
          development densities should reflect the                        regulations.
          peninsula-wide planned future land use pattern
          regarding      existing     village    areas,      new              Public service districts are proposed in Part
          settlement areas, and resource protection                       One as       a    key element of the plan
          areas.                                                          implementation strategy. They are intended to
                                                                          identify the future limits of public services, and
              Future residential development would                        associated urban development, within a
          include the special housing needs of special                    specified time period. Thus, a "village"
          populations, such as young families, the                        services district, or similarly named district,
          elderly, and those with low incomes. The                        would identify the bounds within which a local
          extent of these and other special populations                   municipality intended to introduce new or
          on the peninsula should be identified and                       expanded public services to support a village
          alternative techniques established for local                    development pattern. On the other extreme, a
          programs to address these needs. In no case                     "rural" services district would identify the
          should commercial or industrial development                     bounds      within      which      no     substantial
          be allowed to occur where adequate public                       introduction or expansion of public services
          facilities are not in place to meet the                         would occur and within which the continuation
          immediate needs of such development. Such                       of the existing rural character is planned. A
          policies can be clearly stated within local plans               "partial" or "limited" services district could



          The Leelanau General Plan - Functional View                                                                   Land Use
                                                                                                                      Page 12-11








           provide for a level of public services                            Implementation of the service districts will
           somewhere between the village and rural                       ultimately need to be rooted in the master
           services districts. The determination of the                  plans adopted by the local municipalities of the
           service district boundaries would be critically               peninsula. These plans should identify the
           linked to the planned future land use pattern in              boundaries of each service district, the planned
           the municipality and peninsula.                               future land use pattern within each district, the
                                                                         intended levels of public services planned for
              The implementation of service districts                    each district, the basis for the locations of
           better ensures that the peninsula and its local               each district, and conditions whereby changes
           municipalities       will    have a compact                   to   the     district   boundaries      would      be
           development pattern and managed growth                        appropriate.
           rates. The implementation of the service
           districts also enables municipalities to more                     Local plans and regulations should be
           effectively     plan    and     prioritize    capital         enhanced to provide for increased protection of
           improvements, as well as to minimize                          the peninsula's special resources. Land use
           unnecessary public service cost.                              demands placed upon inland lakes would be
                                                                         minimized through adoption of keyhole









                                                                           TtW

                                                 4-



                                                                                        AL










                                                                                      - ----------
















                                                                                                                        -2

                                                                                                        Nm@


                                                                                                                        Vj
                                                                                                   A



                     Sugar Loaf Resort during ski season.


           Land Use                                                                  The Leelanau General Plan - Functional
           Page 12-12









          regulations. Extraction of the minerals should                 Action
          be based upon local plans and regulations                      Statement:        Identify, with the support of
          which provide for the protection of priority                                     farm      groups,       the      Soil
          sand and gravel resources and the surrounding                                    Conservation Service and local
          environments and the reclamation of extraction                                   governments, those farm areas
          sites.                                                                           most      likely to remain
                                                                                           economically          viable      for
              To support this proactive approach to                                        r e n e w a b I e     r e s o u r c e
          future land use across the peninsula, the                                        management (contiguous land
          county should provide technical and other                                        units at least 40 acres in size
          assistance to municipalities working with the                                    with prime farm, orchard, and
          Leelanau General Plan. This is especially true                                   forest soils) and those areas
          where legal challenges are initiated. Similarly,                                 most      threatened            with
          the county should assist local municipalities in                                 conversion to other uses.
          the development of local regulations based
          upon previously prepared peninsula model                       Action
          regulations. Continuity in implementation of                   Statement:        Create model ordinances to
          local plans and regulations would be achieved                                    prevent land fragmentation of
          through     the    training    of new         planning                           renewable resource lands and
          commissioners, zoning board of appeals,                                          conversion to non-farm or non-
          township board and village council members.                                      forested activities. In particular,
          The basis of the Leelanau General Plan and the                                   these model ordinances would
          role that each official position can play in its                                 include, but not be limited to
          implementation should be included in the                                         farmland      protection zoning
          training program.                                                                regulations and open space
                                                                                           zoning regulations.


          LAND USE POLICIES AND                                          Action
          ACTION STATEMENTS                                              Statement:        Support efforts to enact new
                                                                                           legislation permitting the use of
              The     following      policies    and      action                           transfer     and     purchase       of
          statements are intended to establish the                                         development rights for the
          blueprint for the General Plan's vision for                                      purpose      of    establishing      a
          future land use on the peninsula.                                                peninsula-wide TDR (transfer of
                                                                                           development rights) program
                                                                                           that     protects       renewable
          Issue:                                                                           resource lands by transferring
              Agricultural and forest land protection                                      development          rights      into
           ï¿½  Protecting the economic viability of                                         adjoining existing villages or
              farming.                                                                     new settlements.
           ï¿½  Allowing farmers to capture the
              development value of farmland without                      Action
              creating scattered suburban developments                   Statement:        Encourage the establishment
              which cannot be serviced economicafly.                                       and maintenance of a TDR
                                                                                           and/or     PDR      (purchase       of
          Policy:          Working together, the county                                    development rights) program for
                           and local governments should                                    threatened farm and/or forest
                           initiate proactive measures to                                  lands on the peninsula.
                           protect farm and forest land.




          The Leelanau General Plan - Functional View                                                                   Land Use
                                                                                                                      Page 12-13








            Action                                                                             educate the public about the
            Statement:        Work together            with the                                consequences of building in an
                              assistance of the county in                                      agricultural area.
                              taking prudent measures to
                              ensure the necessary supporting                Issue:
                              facilities for economically viable                  Current large lot zoning practices are
                              agricultural       and/or       forest         ineffective in protecting important open
                              management activities are in                   spaces. Newer techniques such as cluster
                              place,  including but not limited              housinglopen space zoning aren't being used.
                              to:                                              9  Open space zoning is an effective tool to
                               ï¿½      processing plants                           protect open space while still allowing
                               ï¿½      migrant housing .                           planned development in rural areas
                               ï¿½      farm implement dealers                   -  Open space zoning can prevent unplanned
                               ï¿½      fertilizer pesticide dealers                fragmentation of farm and forest lands
                               ï¿½      integrated             p e s t           *  Open space zoning can result in protection
                                      management as an                            of sensitive environments
                                      alternative to intensive                 *  Open space zoning can help protect future
                                      chemical use                                options.
                                      disposal      facilities    for
                                      agricultural wastes
                                      small-tract forest                     Policy:           Encourage          adoption of
                                      management assistance.                                   coordinated local open space
                                                                                               zoning or similar regulations by
            Action                                                                             all townships and villages in the
            Statement:        Adopt      coordinated         zoning                            county.
                              provisions        which      provide
                              adequate       buffers       between           Action
                              agricultural and adjacent land                 Statement:        The county and appropriate local
                              uses to protect the future                                       organizations should initiate an
                              viability of the farmlands.                                      education program targeted to
                                                                                               the general public, landowners,
            Action                                                                             developers and other interested
            Statement:        Promote enforcement of current                                   parties (realtors, bankers, etc.)
                              right-to-farm      legislation for                               to    illustrate   problems with
                              farmers engaged in typical farm                                  existing      large     lot    zoning
                              practices as defined by the                                      practices and the values and
                              State Department of Agriculture.                                 benefits of open space zoning.

            Action                                                           Action
            Statement         Support on-going research and                  Statement:        The county should develop a
                              public/farmer       education        to                          flexible    model      open space
                              preserve valuable productive                                     zoning ordinance based on wide
                              lands. Encourage and support                                     input from local governments
                              the     efforts     of   the      U.S.                           and     property      owners       that
                              Department of Agriculture (SCS                                   supplements existing large lot
                              and ASCS) and the MSU                                            zoning districts as the principal
                              Cooperative Extension Service                                    m e a n s     of     r e s i d e n t i a I
                              to assist local farmers with                                     development outside of villages.
                              contemporary             resource                                Open space zoning should not
                              management techniques and to                                     be encouraged in areas where


            Land Use                                                                      The Leelanau General Plan - Funct(onal View
            Page 12-14









                        more     exclusive      techniques          Policy:        Residential development
                        better    designed     to    protect                       patterns      throughout         the
                        sensitive environments, prime                              peninsula       should      reflect
                        farm or forest lands could be                              economical and efficient use of
                        used.                                                      land and be especially mindful of
                                                                                   the     value    of     protecting
         Action                                                                    renewable resource lands from
         Statement      Non-prime resource lands should                            premature conversion or land
                        be encouraged by local zoning                              fragmentation.      In particular,
                        to be used for new development                             development patterns should be
                        wherever feasible (inside of                               consistent with the need for a
                        prime farm or prime forestland)                            variety of housing types and lot
                        as     I o n g  as     sensitive                           sizes    and     consistent     with
                        environments          (such       as                       existing average densities of
                        wetlands, dunes and floodplains)                           development when in villages. It
                        are protected.                                             should also avoid conversion of
                                                                                   prime and unique farmland and
         Issue:                                                                    where non-prime land is not
            Establishing      approjoria te    residen tial                        available,      incorporate     new
         development patterns and average densities.                               homes as part of an open space
                                                                                   zoning development.










                                                                                  Mw@





                                                                  L










                                   'AN'

                                                         Z
                                           @n'@ t@@a'
                                           T t-@?
                                                      %ï¿½n



                                                                                                                        Q




         The "Village Sampler" development in Glen Arbor.


         The Leelanau General Plan - Functional View                                                           Land Use
                                                                                                            Page 12-15








            Action                                                                             Approval of isolated commercial
            Statement:        Local comprehensive plans and                                    developments is inconsistent
                              zoning ordinances should be                                      with rural planning.
                              updated to reflect the average                 Action
                              densities     proposed       in    this        Statement:        Local governments throughout
                              General Plan for the peninsula.                                  the     county        should       b e
                                                                                               encouraged to adopt plans and
            Action                                                                             regulations which discourage (or
            Statement:        Local units of government                                        better, prohibit) strip commercial
                              should     apply      the    average                             development and spot zoning
                              densities proposed in this plan                                  practices.
                              through appropriate refinement
                              in local comprehensive plans,                  Action
                              zoning       and      subdivision              Statement:        Model procedures to objectively
                              regulations that are particular to                               review proposed development
                              existing local and/or site specific                              so as to identify and prevent
                              conditions       and    which       are                          strip and spot development
                              sensitive to opportunities that                                  should      be    developed        and
                              will    benefit     all     peninsula                            promoted        by the        county
                              dwellers and/or visitors.                                        Planning Commission.

            Action                                                           Action
            Statement:        The       County        P I a n n i n g        Statement:        Access control regulations in the
                              Commission, with the                                             Grand Traverse Bay Region
                              assistance of the local                                          Development Guidebook should
                              governments in the county,                                       be widely promoted by the
                              should establish model land                                      County Planning Commission for
                              development         standards to                                 use throughout the county as a
                              achieve the average densities                                    tool to better control access in
                              proposed      in this plan.          In                          emerging commercial areas and
                              particular,    special      attention                            prevent the spread of a strip
                              s h o u I d    be     g i v e n     to                           commercial pattern.
                              establishment          of    zoning
                              standards to continue traditional              Action
                              village development patterns                   Statement:        Existing commercial centers
                              when villages are enlarged or if                                 should be supported by flexible
                              new village settlements are                                      zoning practices that encourage
                              created.                                                         flexibility   and     retention      of
                                                                                               existing businesses as well as
            Issue:                                                                             adaptive     reuse     of     existing
                Discourage the creation andlor expansion                                       buildings.
            of strip commercial and residential
            development as well as spot zoning practices.                    Action
                                                                             Statement:        New commercial development
            Policy:           Strip commercial and residential                                 that cannot be accommodated
                              development should be                                            in existing village centers should
                              discouraged through local land                                   be encouraged by local zoning
                              use plans and regulations that                                   to locate in small commercial
                              instead promote compact and                                      centers surrounded                  by
                              cluster development patterns.                                    residential areas rather than in


            Land Use                                                                      The Leelanau General Plan - Functional View
            Page 12-16









                          strip malls or other forms of                                 p r e p a r e    m o d e I    s i t e
                          strip commercial development.                                 condominium, subdivision and
                                                                                        lot split regulations and promote
                                                                                        t h e i r uniform        adoption
         Issue:                                                                         throughout the county. Model
             Mix of residential types to ensure adequate                                regulations should consider the
         affordable housing.                                                            rural and village character of
                                                                                        most of the county and not
         Policy:          In   preparing       plans       and                          inappropriately incorporate
                          development regulations, local                                urban standards except where
                          governments should provide for                                development is urban (as in
                          the growing housing needs of                                  southeast Elmwood Township).
                          special populations (particularly
                          young families and the elderly).             Action
                                                                       Statement:       A plat and condominium review
         Action                                                                         committee should be established
         Statement:       The county should assist local                                at the initiative of the county
                          governments,in identifying the                                Planning Commission to review
                          housing     needs      of special                             all  plats and condominium
                          populations (such as the elderly,                             projects proposed in the county.
                          infirm, migrants, young families                              Representation of appropriate
                          and low income families) and                                  organizations should be provided
                          encourage the private sector to                               for as illustrated by similar
                          meet those needs.                                             committees in Grand Traverse
                                                                                        and Manistee Counties.
         Action
         Statement:       The county should identify
                          .alternative   techniques        (and        Issue:
                          where necessary, prepare model                   Type, amount and location of commercial
                          ordinances) for local initiatives            and industrial development.
                          to meet the needs for af fordable
                          housing in the county.                       Policy:          New commercial and industrial
                                                                                        development should occur only
                                                                                        in planned locations with a
         Issue:                                                                         "Class A " road (or equivalent)
             Negative impacts of land fragmentation and                                 and other adequate public
         uncoordinated subdivision and site                                             facilities and in the amount
         condominium regulation.                                                        necessary to meet immediate as
                                                                                        opposed to speculative
         Policy:          Local governments should adopt                                population needs.
                          and implement site
                          condominium, subdivision and                 Action
                          lot split regulations to prevent             Statement:       Local comprehensive land use
                          premature conversion of large                                 plans and zoning regulations
                          parcels and to ensure adequate                                should focus new commercial
                          access.                                                       and industrial development in
                                                                                        existing villages or existing
         Action                                                                         commercial       service     centers
         Statement:       The county, in conjunction with                               except where careful planning
                          local    governments,         should                          has identified the need for and



         The Leelanau General Plan - Funcdonal View                                                                  Land Use
                                                                                                                  Page 12-17








                             public benefits of locating new                                services     necessary for the
                             commercial or industrial facilities                            average development densities
                             elsewhere      (see    policies     in                         established by the Leelanau
                             Economic Development section).                                 General Plan and implemented
                                                                                            by local plans and zoning
           Action                                                                           regulations.
           Statement:        New resort development should
                             be considered a commercial use                Action
                             of land that has impacts of                   Statement:       Local comprehensive land use
                             greater than local concern. As                                 plans, local zoning regulations,
                             such, approvals for new resort                                 and both local and county public
                             development should be reviewed                                 facility decisions should reflect
                             and evaluated by adjoining local                               conformance with the village,
                             governments         and      county                            partial, and rural service districts
                             agencies prior to a decision by                                established in this Leelanau
                             the local government having the                                General      Plan (see action
                             development approval authority.                                statements which follow).


           Issue:                                                          Action
               Need to establish public service districts to               Statement:       Village service districts are
           guide future growth.                                                             established in this plan to
                                                                                            identify the future extent of
           Policy:           Village, partial and rural service                             public services for new sewers,
                             districts should be established                                water, and roads within the next
                             for sewer, water, and roads to                                 twenty    years in those areas
                             prevent      sprawl       and      to                          abutting   existing villages in the
                             economically provide       only the

















                                                                                                                                  'b







                                                                                                                                  4@




           Strip commercial development along Traverse Hwy. (M-72) in southern Leelanau  County.


           Land Use                                                                    The Leelanau General Plan - Funcdonal View
           Page 12-18








                         county. An urban service area                              uses to minimize the nuisance
                         should be designated in that                               impacts of one use upon the
                         urban    portion   of southeast                            other.
                         Elmwood Township abutting
                         Traverse City.                             Action
                                                                    Statement:      The county, with the assistance
         Action                                                                     of local governments should
         Statement:      Special areas in the county,                               establish   appropriate      buffer
                         such as around an existing                                 standards between land uses
                         inland lake, that may benefit                              and promote common use of
                         f rom   some     limited     public                        these standards throughout the
                         service, such as a sewer system                            peninsula. The Grand Traverse
                         to solve a water quality                                   Bay    Region Development
                         problem, may be established as                             Guidebook should be used as a
                         a partial services district. Such                          basis    for  the   creation     of
                         service areas should not be                                standards     for    landscaping,
                         developed or designed so as to                             buffering,     screening and
                         accommodate more intensive                                 separation distances between
                         future    development       unless                         incompatible land use activities.
                         redesignated as a village service
                         district. Where less capital               Action
                         intensive solutions are possible           Statement:      Educational materials should be
                         (such    as    a   septic      tank                        developed and distributed to
                         maintenance      program)      they                        promote wide understanding and
                         should be used.                                            application    of   the     buffer
                                                                                    standards.
         Action
         Statement:      -The portion of the county not in          Action
                         an urban service district, a               Statement:      The land developer should be
                         village service district or a                              asked to provide the buffer, not
                         partial service Aistrict, should be                        the adjoining farmer or other
                         in a rural service district. Public                        landowner.
                         services to be available to
                         properties    in  rural    services        Issue:
                         districts during the next twenty              Private lands contiguous to Sleeping Bear
                         years are not expected to be               Dunes National Lakeshore, the Leelanau State
                         significantly different than they          Park, and the Pere Marquette State Forest.
                         are in 1993.
                                                                    Policy:         Low density compatible uses
         Issue:                                                                     should be encouraged by the
             Buffers between residential land uses and                              creation of flexible zoning and
         farms     and between residential and                                      incentive programs for private
         commerciallindustrial land uses.                                           landowners who commit their
                                                                                    land to uses which enhance the
         Policy:         Local comprehensive land use                               scenic resources and the public
                         plans and development                                      investment in parks.
                         regulations should include buffer
                         standards between residential              Action
                         land   uses and agricultural,              Statement:      Create     incentive     programs
 0                       commercial or industrial land                              which have the effect of

         The Leelanau General Plan - Functional View                                                           Land I
                                                                                                            Page 12-19








                                decreasing residential density on                   Action
                                appropriate land adjacent to                        Statement:         Keyhole        regulations        should
                                public parks. Acquisition of                                           recognize the importance and
                                conservation easements could                                           legitimacy of public access to
                                be used as the preferred method                                        inland lakes and not work to
                                for preserving scenic land in                                          thwart efforts to increase public
                                private ownership near the                                             access promoted              by other
                                parks.                                                                 policies in this plan. Different
                                                                                                       types of public access can be
            Action                                                                                     provided for (e.g., for recreation,
            Statement:          Local       plans      and       zoning                                or for fire trucks to draw water
                                ordinances should recognize the                                        in an emergency).
                                importance of preserving scenic
                                open space near parks. Local                        Issue:
                                government units may create                              Mineral extraction operations.
                                ordinances which encourage low
                                density and/or clustered                            Policy:            Economically viable sand and
                                development            and       quality                               gravel resources should be
                                commercial . development                 in                            identified and protected from
                                villages adjacent to parks. Such                                       surface conversion to other uses
                                zoning should be compatible                                            prior to initiation of extraction
                                with incentive programs to                                             activities.      Extraction should
                                preserve land and should include                                       always be based on an approved
                                site plan review provisions for                                        reclamation plan which focusses
                                new development near existing                                          on the f uture land use after
                                parks.                                                                 extraction           activities        are
                                                                                                       complete.
            Issue:
                 Inland lake management.                                            Action
                                                                                    Statement:         The       County           P I a n n i n g
            Policy:             Regulations to protect inland                                          Department should identify and
                                lakes from the effects of                                              classify       sand      and      gravel
                                keyholing should be established                                        resources and the anticipated
                                and implemented.                                                       future demand for such
                                                                                                       resources.
            Action                                                                  Action
            Statement:          The county, in conjunction with                     Statement:         Local      governments            should
                                local governments and lake                                             include protection of priority
                                associations should establish                                          sand and gravel resources in
                                model keyhole regulations that                                         local comprehensive land use
                                r e c o g n i z e    t h e    u n i q u e                              plans and zoning regulations.
                                characteristics      of the lakes in                Action
                                the county and the benefits of                      Statement:         The county, in conjunction with
                                uniform regulations when a lake                                        local     governments,            should
                                is surrounded by more than one                                         prepare model sand and gravel
                                jurisdiction.                                                          regulations which aim to protect
                                                                                                       the environment, and require
                                                                                                       reclamation for an approved
                                                                                                       future land use, prior to digging
                                                                                                       the first shovel into the ground.



            Land Use                                                                               The Leelanau General Plan - Functfonal View
            Page 12-20










         Action                                                     Action
         Statement:      Local governments should adopt             Statement:      The county prosecutor's office
                         and implement model sand and                               (or other expert qualified legal
                         gravel regulations.                                        counsel) should provide legal
         Action                                                                     assistance in the development
         Statement:      An education program for sand                              of   any     model      ordinance
                         and gravel operators should be                             language promoted by this plan.
                         initiated to facilitate operator           Action
                         planning and reclamation                   Statement:      Any community facing a legal
                         management.                                                challenge     to   a     regulation
                                                                                    consistent with an approved
         Issue:                                                                     model should be eligible to
             Legal support for defense of local                                     receive - assistance from or
         development regulations.                                                   through the county prosecutor's
                                                                                    office    in   defense     of    its
         Policy:         Where local governments in the                             regulation or regulatory action.
                         county have developed local
                         regulations consistent with a              Issue:
                         model prepared and promoted                    The implementation of land use plans and
                         by the county, the county                  regulations is the responsibility of local
                         should provide legal assistance            commissions and boards, and these are subject
                         in the defense of any legitimate           to high turnover.
                         challenge to those regulations.

























                                                                                                                        Q




         Sleeping Bear Dunes National Lakeshore headquarters in Empire.


         The Leelanau General Plan - Functional View                                                           Land Use
                                                                                                             Page 12-21








           Policy:         Training programs which, a)                Issue:
                           outline the purpose and goals of               Adequate housing for all.
                           the Leelanau General Plan, b)
                           describe the responsibilities of           Policy:         The Leelanau Peninsula should
                           local Commission and Board                                 contain an adequate distribution
                           members and, c) provide case                               and mix of housing to enable
                           studies of various zoning issues                           each resident to secure safe,
                           that demonstrate the need for                              adequate       housing     at an
                           objectivity and consistency in                             affordable price.
                           decision making, should be
                           conducted/coordinated                      Action
                           periodically by the county.                Statement:      Sufficient residential units of the
                                                                                      small lot, single family,
          Action                                                                      detached, attached, or multi-
          Statement:       The     County        P I a n n i n g                      family type should be developed
                           Department should administer                               so that the mix. of housing units
                           the creation and presentation of                           on the peninsula will facilitate
                           such    training   programs.      A                        provision of affordable units to
                           frequency     for     presentation                         all county residents.
                           should be determined through               Action
                           consultation with the local units          Statement:      The     county       and      local
                           of government.                                             government       should     support
                                                                                      expansion     of initiatives for
                                                                                      congregate housing







                                                                                             lad"











                                                                                                                     42


                                                                                                                     k


            A gravel extraction operation in Kasson Township.


          Land Use                                                                The Leelanau General Plan - Functional View
          Page 12-22









                         arrangements throughout the                                 recreational, child care and
                         peninsula for elderly and other                             public safety elements in design.
                         special needs populations.                 Action
         Action                                                     Statement:       Utilize U.S Housing and Urban
         Statement:      Zoning and other land use                                   Development, Michigan State
                         control regulations should be                               Housing Authority and other
                         reviewed to assure opportunities                            related housing programs for
                         to    encourage        additional                           technical      and      financial
                         affordable     housing      options                         assistance.
                         through increased flexibility,
                         especially where the need is the           Action
                         greatest.                                  Statement:       Explore model local zoning
                                                                                     approaches to permit accessory
         Action                                                                      apartments and/or temporary
         Statement:      Research should be initiated for                            accessory housing pursuant to
                         ways of reducing development                                adopted standards.
                         costs for all housing, including
                         affordable housing through a               Issue:
                         review of the development                      Protection of solar and wind access rights
                         approval       process,         and        and promotion of energy conserving
                         development of regulation and              technology.
                         code standards.
                                                                    Policy:          Develop strategies to promote
         Issue:                                                                      energy conservation as a part of
             There is a lack of diversified, affordable                              new land use and development
         housing in the peninsula preventing workers                                 activity.
         from living near where they work.
                                                                    Action
                                                                    Statement:       Develop a model ordinance that
         Policy:         Develop      a     peninsula-wide                           ensures protection of solar and
                         Housing       Task     Force      to                        wind     access      rights     for
                         coordinate housing development                              application in local site plan
                         policy and programs.                                        reviews.
         Action
         Statement:      Investigate special populations            Action
                         and associated housing needs in            Statement:       Encourage use of energy saving
                         the     p e n i n s u I a   (e.g.,                          technology in new construction
                         handicapped, seniors, single                                and site design.
                         parent households).
                                                                    Issue:
         Action                                                         Island development.
         Statement:      Develop a housing rehabilitation
                         program which includes a                   Policy:          A plan for island development
                         weatherproofing element.                                    and/or preservation should be
                                                                                     prepared.
         Action
         Statement:      Develop     affordable      housing        Action
                         adjacent to commercial      centers        Statement:       A plan compatible with the
                         which also incorporate cultural,                            General Plan policies and in



         The Leelanau General Plan - Functfonal View                                                            Land Use
                                                                                                              Page 12-23









                           consideration of the issues               Action
                           addressed      in the      D N R's        Statement:     To prevent every community
                           (proposed) Island Management                             from attempting to provide a
                           Policy should be prepared for                            place for every lawful land use,
                           each of the islands that are a                           and thus create a hodge-podge
                           part of the county.                                      of uses, the County Planning
                                                                                    Commission should periodically
           Issue:                                                                   inv  entory      local     zoning
               Variety of land uses.                                                ordinances and investigate land
                                                                                    use needs to ensure that there is
           Policy:         The county should assist local                           a place in the county for all
                           governments in finding a proper                          lawful    land    uses,    without
                           place for each lawful land use.                          encouraging         unnecessary
                                                                                    p r o I i f e r a t i o nbased   on
                                                                                    undocumented needs for certain
                                                                                    land uses.

















































           Land Use                                                             The Leelanau General Plan - FuncRonal View
           Page 12-24









                               7'                                          IA



                                                                                                                                                                                  Aft







                                                  Part Three                                                                       IMPLEMEN, TAT








                                                          Chapter 13
                                   LOCAL AND PENINSULA LAND USE ISSUES



          INTRODUCTION                                              for and managing change.

             This chapter advocates continuance of the                  At the root of this collaborative approach is
          traditional practice of most land use decisions           the recognition that all land use issues can be
          being made at the local level of government,              characterized as failing on a continuum
          however, it also acknowledges the appropriate             representing the degree to which they have
          role of county policy makers in issues of                 local and/or area-wide impacts associated with
          greater than local concern. This chapter sets             them. This continuum is represented below
          the stage for Chapter 14 which- proposes a                with issues of local concern on one end and
          new institutional structure for land use                  issues of greater than local concern on the
          decisions in Leelanau County.                             other.

                                                                       The current legal structure for land use
          LOCAL AND PENINSULA                                       decisions in Michigan places authority for most
          LAND USE ISSUES                                           land use decisions with the local unit of
                                                                    government (if the local unit wishes to exercise
             As previous working papers (and chapters               this authority). This is usually exercised
          in   this   plan)    have     documented,       the       through local comprehensive (land use) plans
          continuation of "business as usual" as it                 and zoning regulations as authorized by several
          relates to land use decisions on the Leelanau             enabling statutes. In. some areas, counties
          Peninsula will result in continued environmental          make these decisions if local governments
          degradation, loss of rural character, higher              choose not to exercise their authority, as with
          public service costs and a future with far                county zoning.
          fewer choices available to our children and our
          children's children. There is a better way. It is             Other land use decisions are made at the
          built upon a common vision of the future, and             county or state level. Examples include
          consensus on a means for achieving that                   decisions on prisons, landfills, and hazardous
          future. Fundamentally it relies on agreement              waste facilities. In some cases authority can
          between local and county policy makers as to              be shared or transferred between state and
          respective roles and responsibilities in planning         county or local governments, as with the

                                                          Figure 13-1
                                                 CONTINUUM OF INTERESTS





                                                                                                   Issues of
               Issues of                                                                        Greater Than
                  Local                                                                               Local
                Concern                                                                             Concern




          The Leelanau General Plan - Implementatfon                                   Local and Peninsula Land Use Issues
                                                                                                              Page 13-1









           Chapter 15 presents a brief description of              It should be apparent that most of the
         the key processes and priority initiatives that         proposed county level initiatives are related to
         must be taken to successfully implement this            dealing with issues of greater than local
         plan. They largely fall within the authority or         concern. This focus is taken       in order to
         ability of the county to initiate. However, many        supplement and enhance local         government
         will not be successful unless supported by and          capabilities to make the bulk      of land use
         implemented with the support of the village             decisions (i.e. those which have purely local
         and township officials in the county.                   impacts), while also helping to ensure
                                                                 continuous coordination, communication, and
                                                                 cooperation with county policy makers on
         This focus is taken in order to supplement and          issues of greater than local concern. Success
         enhance localgovemment capabilities to make             of this General Plan will be measured in terms
         the bulk of land use decisions (ie. those which         of the degree to which future quality of life on
         have purely local impacts), while also helping          the peninsula is at least retained, if not
         to ensure continuous coordination,                      enhanced by instituting these measures.
         communication and cooperation with county
         policy makers on issues of greater than local
         concern.






















                                           4W





                                                                                      ILI


                                                                                          A








                                                                  ------------







                                                          Jost
                                               Er

































                                            A freighter seeks harbor in Suttons Bay.


         The Leelanau General Plan - Implementation                                Local and Peninsula Land Use Issues
                                                                                                         Page 13-3









                                                          Chapter 14
                                      NEW INSTITUTIONAL STRUCTURE FOR
                                    IMPROVED LAND USE DECISION MAKING



          INTRODUCTION                                              respective roles and responsibilities of county
                                                                    and local governmental agencies. Following is
            The formal start of the process to develop              a description of the institutional structure for
          the Leelanau General Plan began with the                  implementing the Leelanau General Plan. The
          distribution of a button to each of the 60 plus           role of each of the major "players" is also
          member Steering Committee. The button said                described. This structure is reproduced from
          NNone of us is as smart as aff of us 0. That              Chapter 6 of Working Paper #12.
          theme has underlain the entire process of
          developing    the    Leelanau General Plan.
          Together, residents of Leelanau County have               Mutual Respect and Mutual Support
          helped to develop this plan. They will need to
          work together to implement it.                               This new institutional structure grows out
          Intergovernmental             communication,              of the responsibilities imposed on the county
          cooperation,     and    coordination     will    be       and its local governmental bodies by existing
          instrumental in achieving success.                        state law and historical traditions. But to be
                                                                    successful, it will need mutual respect where
                                                                    their responsibilities overlap, and mutual
          NEW INSTITUTIONAL STRUCTURE                               support where they are separate.

             Fundamental      to successfully working                  Areas of overlapping responsibility include
          together in the implementation of the General             planning. The General Plan is peninsula-wide,
          Plan, is having a clear understanding of the              more general and policy oriented, and focused






                         ML
            4"






















          Citizens affending a General Plan Steering Committee meeting listen to a presentation.




          The Leelanau General Plan - Implementation                                           New Institutional Structure
                                                                                                              Page 14-1






                                    LOCAL ROLES AND RESPONSIBILITIES FOR
                   LOCAL PLANNING COMMISSIONS AND LOCAL GOVERNING BODY



          Local Planning Commissions

              Planning commissions in cities and villages                 Making     recommendations on special
          in the county are organized under the                           projects or delegated responsibilities (e.g.,
          Municipal Planning Act, PA 285 of 1931.                         zoning ordinance enforcement).
          Township planning commissions are organized
          under PA 168 of 1959. some of their principal                Local Governing Body
          responsibilities include:
                                                                          The local city or village council and
          ï¿½   Creating, adopting and maintaining a local               township board of trustees also have specific'
              comprehensive plan-to guide future land use              planning and zoning responsibilities. These'
              change and to serve as the legal basis for               include:
              the local zoning ordinance.
                                                                       *  Appointment of qualified persons to serve
          ï¿½   Creating, maintaining and administering                     as members of the planning commission
              responsibilities under the local zoning                     and zoning board of appeals.
              ordinance adopted pursuant to the City
              Village Zoning Act, PA 207 of 1921 or the                *  Adoption of ordinances recommended by.
              Township Rural Zoning Act, PA 184 of                        theplanning commission for implementation
              1943.                                                       of the comprehensive or master plan,
                                                                          including but not limited to a zoning
          ï¿½   Advising the local governing body on                        ordinance and subdivision regulations.
              proposed rezonings, text amendments,
              plats, capital improvements and related                  *  Providing an adequate budget for the
              planning or zoning decisions.                               planning commission to carry out its
                                                                          responsibilities, including keeping the plan
          ï¿½   Educating citizens on the values and                        and zoning ordinance current, and receiving.
              benefits of planning.                                       proper training on their roles, responsibilities
                                                                          and new tools, and techniques for
          ï¿½   Welcoming citizens and citizen comments                     improving the community.
              on local planning and zoning issues and
              acting upon or referring those comments as               9  Providing adequate staff and financial
              appropriate.                                                resources (including setting fee levels) for-
                                                                          enforcement of adopted regulations.
          ï¿½   Considering    to recommendations of the
              County Planning Commission and/or County                 *  Conducting required public hearings prior to-
              Planning Department on planning and                         acting     on    zoning,     subdivision       or
              zoning issues.                                              infrastructure development matters.

          ï¿½   Working with property owners in order to                 0  Receiving and acting on citizen input and'
              try to achieve good development (or                         complaints about planning and zoning
              redevelopment).                                             issues and as appropriate referring matters
                                                                          to the planning commission for action.
          ï¿½   Learning about and staying up to date on
              their    responsibilities       as     planning          9  Initiating amendments to ordinances as
              commissioners and          on various tools                 necessary and soliciting advice from the
  01          available in implementing local plans.                      planning commission.

          The Leelanau General Plan - Implementation                                               New Institutional structure
                                                                                                                  Page 14-3






            TRADITIONAL RESPONSIBILITIES OF THE COUNTY PLANNING COMMISSION



          The County Planning Commission was created                 * Assisting in the development of model
          by the County Board of Supervisors on                        regulations for use by the county or local
          January     13,    1970     pursuant     to    the           governments.
          requirements of the County Planning Act, PA
          282 of 1945. Initially it also had responsibility          9 Educating the general public about the
          under PA 183 of 1943 to prepare and                          values and benefits of planning.
          implement a county zoning ordinance. This
          responsibility was suspended in December                   9 Welcoming citizen comments on local
          1992 as the last township in the county                      planning and zoning issues and acting upon
          without its own zoning ordinance adopted an-                 or referring those comments as appropriate.
          interim zoning      ordinance     (Suttons Bay
          Township). Currently, the County Planning                  9 Learning about and staying up to date on
          Commission is responsible for:                               the    responsibilities   of   the     Planning
                                                                       Commissioners and on           various tools
          ï¿½  Preparing and maintaining      a plan for the             available in implementing local plans.
             development and/or protection of the
             peninsula.      It will be responsible for                Coordinating     planning and associated
             adopting the Leelanau General Plan.                       development regulations with other
                                                                       governmental units and public agencies.
          ï¿½  Reviewing and commenting on proposed
             new public facilities or improvements.                    Attempting to prevent incompatible-
                                                                       planning and zoning.
          ï¿½  Making recommendations on proposed
             township plans and/or rezoning or text
             amendments.



          6. Provide technical assistance.                           1. Prepare and Maintain the General Plan

          7. Support the development and maintenance                   The primary responsibility of the County
             of a data center in the County Planning                 Planning Commission will be the preparation
             Department (including GIS).                             and maintenance of a General Plan for the
                                                                     peninsula. The Plan will be annually reviewed
          8. Prepare and promote model      ordinances.              and completely updated at least once each five
                                                                     years. This also requires the maintenance of
          9. Arrange      and    promote       educational           background data and periodic updating of
             opportunities on planning and growth                    working papers and other reports on specific
             management.                                             planning issues. The General Plan will serve as
                                                                     a guide for long-range development of local
          10. C a r r y  out    specially       delegated            comprehensive plans with respect to the
             responsibilities of the County Board of                 pattern and intensity of land use and the
             Commissioners.                                          provision of public facilities, as well as for any
                                                                     long-range fiscal plans for such development.
          Each of these duties is described in more detail           The General Plan will include recommendations
          in the following paragraphs.                               for the most effective economic, social, and
                                                                     physical development of the county as well as
                                                                     provide the basis for future county facility
                                                                     plans.




          The Leelanau General Plan - Implementation                                           Now Institutional Structure
                                                                                                             Page 14-5








              The County Planning Commission will                       overall    plans.       The     County       Planning
           annually prepare, through the County Planning                Commission will be encouraged to coordinate
           Department, and "official map" of all proposed               planning efforts with private agencies as well,
           capital improvements in the county for the                   such as utility companies, chambers of
           next 6 years. This will be distributed to all                commerce, etc.           If supported by local
           public agencies in the county.                               governments in the county and by the County
                                                                        Board of Commissioners, the County Planning
              Once the General Plan has been adopted                    Commission may provide adjudication or
           and a certified copy of the plan is delivered to             mediation services on disputes related to land
           the County Board of Commissioners, then the                  use and infrastructure issues covered by the
           statutory authority requiring County Planning                General Plan. In so doing, the County Planning
           Commission review and approval of public                     Commission may employ such experts as
           works proposals will be initiated. This will                 necessary to assist in accomplishing the task.
           apply to the expenditure of funds by a county
           board, department or agency for acquisition of
           land, the erection of a structure or extension,              Technicalassistance will be initially targeted to
           correction or improvement of any physical                    local governments for efforts to update local
           facility, including roads or drains, until the               plans anddevelopment regulations in a manner
           County Planning Commission has reviewed the                  compatible with the General Plan.
           proposed location and extent of the project
           and reported back to the County Board and/or
           the department or agency submitting the
           proposal.      If the project or proposal is                 5. Seek Grants and Other Financial Assistance
           consistent      with     the    adopted       capital
           improvements program and the General Plan,                       In addition to the powers allowed by other
           then it will be recommended for approval.                    provisions of the County Planning Act, the
                                                                        County Planning Commission with approval of
                                                                        the County Board may apply for, receive and
           4. Coordinate Planning and Growth                            accept grants from any governmental agency,
              Management Activities with Other Public                   or from the federal government, and agree to
              and Private Agencies                                      and comply with such terms and conditions as
                                                                        may be necessary, convenient or desirable.
              The County Planning        Commission will be             The County Planning Commission may do any
           charged with cooperating with all state, federal             and all things necessary or desirable to secure
           (including the National Park Service), and local             financial aid or cooperation of the federal
           governments and other public agencies (such                  government in carrying out the functions of the
           as schools, Soil Conservation Service, etc.) as              commission, when approved by a 2/3 vote of
           well as with the Grand Traverse Band of                      the County Board of Commissioners.
           Ottawa and Chippewa Indians, in preparation
           of the General Plan and will seek coordination
           of their programs in the county. The General                 6. Provide Technical Assistance
           Plan will also serve as the basis for
           coordinating all related plans of the department                 As a part of their coordination function, and
           or   subdivisions       of    Leelanau       County          in  order to ensure implementation of the
           government.          Coordination      with      local       General Plan, the County Planning Commission
           governments will be expansively interpreted to               will be authorized to assist in structuring
           include issues of greater than local concern                 technical assistance services to public agencies
           and not merely limited to border issues. The                 and citizens. These activities will be largely
           County Planning Commission will consult with                 provided     through the        County Planning
           adjacent counties to avoid conflicts with                    Department and will be dependent on budgeted



           The Leelanau General Plan - Implementation                                                New Institutional Structure
                                                                                                                    Page 14- 7








            special issues assigned to them by the County                        member County Planning Commission to
            Board of Commissioners. Staff support will be                        include representation on a geopolitical basis
            provided by the County Planning Department.                          instead of an occupation or interest group
            Where this exceeds work planned in an annual                         basis. A mechanism will be established for
            work       program,        the     County        Planning            input by citizens and local government officials
            Commission could expect that either other pre-                       as to nominations of candidates to the County
            approved tasks will be foregone, or additional                       Board       for    consideration        prior    to      any
            resources will be made available to complete                         appointments. Representatives will be drawn
            the new task.                                                        from each of the eleven townships and will be
                                                                                 appointed on the basis that they will represent
                In all dealings with the public and local                        not only general peninsula wide interests, but
            government officials, the County Planning                            also specific interests in their township.
            Commission will be expected to be open and                           Representatives from Empire, Leelanau and
            receptive to input and seriously consider all                        Suttons Bay Townships will also represent
            relevant facts before rendering an opinion. All                      their respective villages.               The Elmwood
            Planning      Commission decisions will be                           Township representative will also serve as a
            expected to be in writing with supporting
            documentation. County Planning Commission
            will be expected to maintain (and update as
            necessary) rules of procedure (or bylaws) and
            use them as a guide to its conduct and
            procedure.



            The County Planning Commission will also be
            charged with the responsibility to propose
            standards, criteria, and suggested model
            ordinances to regulate the use and
            development of land and water within the
            peninsula.


                A report of Planning Commission activities
            accompanied by a work program and budget
            for the next year will be annually prepared. it
                                                                                                                          A
            will be distributed for review, comment and
            refinement to each local government and other
            public agencies in the county prior to submittal
            to the County Board of Commissioners.                                                                          J,



            A report of Planning Commission activities
            accompanied by a work program and budget
            for the next year will be annually prepared



            County Planning Commission Structure


                                                                                                                                           @'@4 -4
                The County Board of Commissioners will
            modify the ordinance establishing the 11-                            Daffodils are plentiful in Leelanau County during the spring
                                                                                 months.


            The Leelanau General Plan - Implementation                                                            New Institutional Structure
                                                                                                                                   Page 14-9








            The designee of the Grand Traverse Band of            the County Planning Commission and/or
            the Ottawa and Chippewa Indians.                      established by a statutory or other applicable
                                                                  review procedure.
            As deemed appropriate by the           County
         Planning Commission, such other           persons
         could also be appointed. Such appointments               The subcommittee process is proposed not to
         will be based on the specific issue and unique           lengthen any review process, or otherwise
         geographic considerations. In making such                delay making a decision, but rather to permit
         appointments, the Planning Commission will               broader consideration and input on key issues
         need to keep in mind the desire to keep the              of peninsula-wide significance andlorlong term
         subcommittee small enough to be functional               impact.
         and oriented to its principal purpose which is
         looking out for the best interests of the whole
         peninsula on issues of greater than local                County Planning Department Role
         concern (and not merely looking out for the
         interests of those who may live in the                      The principal responsibilities of the County
         immediate area).                                         Planning Department will include those listed
                                                                  below.     However, none of the current
            One person could serve in more than one               responsibilities listed in the sidebar are
         capacity on any established subcommittee.                proposed to be dropped even if not mentioned
                                                                  below:
            The subcommittee will be charged with                 1. providing staff assistance to the County
         advising the Planning Commission (before it                 Planning Commission.
         acts) on any issue of greater than local
         concern as so assigned by the Planning                   2. providing staff assistance to the County
         Commission. Staff of the County Planning                    Board of Commissioners, and other county
         Department will assist the subcommittee                     agencies.
         within the parameters of the task assigned by
         the Planning Commission and within the time              3. providing technical assistance services to
         and other resources available.                              local governments.

            The County Planning Commission, through               4. continued development and maintenance of
         its Rules of Procedure (or bylaws), will                    a data center (including GIS).
         establish a mechanism for creating and
         convening any subcommittee, as well as                   5. representing    the county on various
         establish what issues qualify as an issue of                committees.
         greater than local concern.         The County
         Planning Commission may not create or                    1. Providing Staff Assistance to the County
         convene a subcommittee to advise on a routine               Planning Commission.
         matter, such as a township rezoning proposal,
         unless the issue in question is a bona fide issue           The County Planning Department will
         of greater than local concern requiring broader          continue to     provide the principal staff
         input prior to making a decision.             The        assistance to the County Planning Commission
         subcommittee process is proposed not to                  in the discharge of each of the ten major duties
         lengthen any review process, or otherwise                described above.
         delay making a decision, but rather to permit
         broader consideration and input on key issues            2. Providing Staff Assistance to the County
         of peninsula-wide significance and/or long term             Board and other County Agencies
         impact. All subcommittee action must be
         completed within the time frame assigned by                 The County Planning Department will also


         The Leelanau General Plan - Implementation                                         New Institutional Struci7re_
                                                                                                         Page 14-11









          continue to provide staff assistance to the                  5. Represent       the    County on          Various
          County Board of Commissioners and other                         Committees
          county department as directed or requested
          (and as financial and personnel resources                       The County Planning Department will
          permit).                                                     continue to represent the county on various
                                                                       committees (both inside and outside of the
          3. Provision of Technical Assistance Services                county). It will also provide staff support to
              to Local Governments                                     ongoing County Planning committees related to
                                                                       solid waste and economic development.
              In addition, it will       provide expanded
          technical     assistance     services     to     local
          governmental units in support of actions to                  County Board of Commissioners Role
          implement the Leelanau General Plan. The
          County Planning Department will be permitted                    As relates to planning and efforts to better
          to offer these services on a fee or other basis              guide growth on the peninsula, the primary
          pursuant to guidelines proposed by the County                responsibilities of the County Board of
          Planning Commission and approved by the                      Commissioners include:
          County Board of Commissioners.                               1. initially reconstituting the County Planning
                                                                          Commission.
          4. Development and Maintenance of a Data
              Center                                                   2. appointing qualified members of the County
                                                                          Planning Commission.
              A special responsibility of the County
          Planning Department in conjunction with other                3. maintaining a qualified professional planning
          county departments, will be the continued                       director and planning staff.
          development and maintenance of the Leelanau
          Land Information System and its eventual                     4. providing adequate financial support to the
          expansion to a fuller geographic information                    County Planning Commission and County
          system. A wide range of local, county, state                    Planning Department.
          and federal data sets will be gathered and
          maintained. A special focus of data analysis                 5. making decisions on county initiated or
          activities will be monitoring land use change                   financed facilities and infrastructure.
          and related change indicators (see Working
          Paper #5) to provide an "early warning                       6. helping with local government efforts
          system" on variables indicating trends that are                 compatible with the General Plan.
          in conflict with adopted General Plan policy, or
          which suggest a need to change policy in the                 7. approving the Leelanau General Plan.
          plan.
                                                                          Each of these responsibilities is described in
              In addition, a multi-year plan for the data              more detail below.
          center will be developed and annually updated,
          along with the necessary protocols and
          referencing mechanisms to ensure proper                      1. Reconstitute        the    County Planning
          maintenance of the data and other library                       Commission
          materials in the data center. A special effort
          will be made to stay abreast of contemporary                    The first responsibility of the County Board
          planning tools and techniques and related                    of Commissioners in the implementation of this
          research efforts and to acquire, as useful, such             plan is to reconstitute the County Planning
          information for the department's library as will             Commission.        This requires amending the
          be helpful.                                                  ordinance creating the original Planning


          The Leelanau General Plan - Implementation                                               New Institutional Structz
                                                                                                                 Page 14-13








          more to speed plan implementation than any                 Relationship with Citizens
          other single action.                                       and the General Public

                                                                        Ultimately all public services are established
          7. Approve the Leelanau General Plan                       and maintained for the benefit of the present
                                                                     and future citizens and visitors of the county.
             Following adoption of the Leelanau General              As this new institutional structure is refined
          Plan by the County Planning Commission, it                 and implemented, it is important that existing
          will be important for the County Board of                  opportunities for public input and assistance
          Commissioners to formally approve the                      not be reduced, and that as feasible, they be
          Leelanau General Plan, and thereafter approve              expanded to include people not presently
          any amendments to it. No other action will                 represented.    Opportunities will include not
          more    graphically    demonstrate continued               only those required by law at public hearing,
          county board support for this important growth             but also other less formal opportunities as
          management tool.                                           resources become available or the need
                                                                     becomes more apparent.

          Role of Other Governmental Agencies                           The role      of the citizen has been
                                                                     instrumental in providing guidance in the
             A special effort will be made by the County             development    of this General Plan.         it is
          Board of Commissioners, County Planning                    intended that the citizen continue to have
          Commission and County Planning Department                  ready access to the planning process and
          to establish formal, regular communication                 information and policies developed as a result
          with the County Road Commission, County                    of it.
          Drain Commission and Health Department in
          the pursuit of mutual objectives under this
          plan. Cooperation and coordination of efforts
          related to the* provision of public services and
          -facilities, particularly as to their potential for
          growth inducing impacts is critical to
          successful implementation of the Leelanau
          General Plan.        All new public facilities                                          rr,
          proposed by these agencies will be included in
          the annual county CIP according to procedures
          adopted      by    the    County      Board      of
          Commissioners.


             The County     Planning Department will be
          responsible for establishing and maintaining, as
          necessary, liaison with state and federal
          agencies whose decisions could impact on the
          successful implementation of the Leelanau
          General Plan.      In particular, the Michigan
          Department of Natural Resources and National
          Park Service will be singled out to establish
          and    maintain      regular communication,
                                                                                                                 41W
                                                                                                                 7
          cooperation and coordination.
                                                                                               ROM






                                                                     Ducks enjoy a wintery swim in the Leland River.


          The Leelanau General Plan - Implementation                                            New Institutional S&ucture
                                                                                                             Page 14-15









                                                               Chapter 15
                                            GENERAL PLAN IMPLEMENTATION



          INTRODUCTION                                                    For example, local plans and development
                                                                          regulations will be easier and less costly to
              Achievement      of the principal goal of this              prepare and maintain because the information
          General Plan (see page vi) requires the creation                in the Planning Department's "county data
          of an effective program of coordinated local                    center" can easily be updated and displayed on
          and county efforts. The principal institutional                 maps from the Land Information System. In
          components of this program were presented in                    working in partnership with the county in a
          Chapter 14. This chapter describes the general                  manner compatible with this plan, local
          process to be followed. Key priorities for                      governments will be able to justifiably provide
          inclusion in short range action programs and                    for a narrower range of land uses in their plans
          budgets are also identified. A more detailed                    and zoning regulations. This could eliminate
          process for implementation will need to be                      the continued scattering of commercial and
          developed after adoption of the General Plan                    industrial uses in inappropriate locations while
          for annually updated work programs tied to                      improving      the     success      of    businesses
          local and county budgets.                                       established in appropriate locations. These and
                                                                          many other benefits previously identified will
                                                                          result from implementation of this General
          As important a benchmark as this plan                           Plan.
          represents, the initiatives proposed in this
          General Plan will not implement themselves.
                                                                          The central ingredients to successful plan
                                                                          implementation will be commitment by the
                                                                          County Board of Commissioners and support
             As important a benchmark as this plan                        from local units of government.
          represents, the initiatives proposed in this
          General Plan will not implement themselves. It
          will take the concerted efforts of citizens,
          elected officials, local and county planners,                      As this General Plan explains, county
          and other administrative officials to bring this                concerns related to growth and development
          plan from concept into reality. It will take                    issues are most significant on issues of greater
          continued support and commitment for many                       than local concern. Such issues, while
          years. However, the goals of this plan and the                  numerous, do not include the full range of land
          actions proposed to implement it offer the                      use issues that must be addressed by local
          promise of a much better future than that likely                communities, but they do overlap on certain
          to occur if existing trends continue unabated.                  issues. This should not be viewed as negative,
                                                                          or an obstacle to progress, but rather as an
              The central ingredients to successful                       opportunity to insure that both local and
          implementation will be commitment by                            peninsula-wide issues are adequately
          citizens,      by     the    County       Board       of        addressed before making decisions on issues
          Commissioners,       and by support from local                  of greater than local concern. All citizens will
          units of government. Benefits to all groups will                benefit, and future debacles over such issues
          be most visible in terms of lower infrastructure                as siting of golf courses and/or radio towers in
          and maintenance costs for public facilities and                 sensitive natural resource areas could be
          retention of the rural character of the                         avoided.
          landscape (so cherished by residents and
          visitors). Many indirect benefits will also occur.


          The Leelanau General Plan - Implementation                                                  General Plan Implementado;;
                                                                                                                       Page 15-1









          Establishment of Priorities                              e  Those    action    statements having        an
          for Strategic Initiatives                                   assigned responsibility to a particular group
                                                                      are of the highest priority.
             Following plan adoption, the next major
          process will be to establish the key strategic           e  A lower priority level exists when the
          initiatives to be immediately undertaken, and               responsibility is implied, as when the term
          others to be included in the next round of                  "the economic development leadership
          annual work programs and budgets. This                      shall..." is used, or when an indefinite
          process needs to extend beyond the County                   assignment is made such as "the county
          Planning Department/County Planning                         will ......
          Commission budget to include all county
          departments,     being    replicated wherever               No immediate priority.is implied when no
          feasible, in the planning and budgeting                     organization or individual is listed as
          processes of other governmental units (such as              responsible for the action. That leaves
          townships and villages) and of nonprofit                    these action statements as targets until an
          organizations (such as area chambers of                     organization    steps    forward    to    take
          commerce, land trusts, etc.) which have key                 responsibility for implementation, and/or
          roles in plan implementation (see especially the            adequate     county resources become
          action statements in Part Two).                             available.



          Mechanism for Updating the General Plan
                                                                   An annual report on actions taken to
             It is also very important that these annual           implement the plan should be made to the
          priority and budget sessions be institutionalized        County Board of Commissioners, along with
          and adhered to. An annual report on actions              adoption of any necessary amendments by the
          taken to implement the plan should be made to            County Planning Commission.
          the County Board of Commissioners, along
          with adoption of any necessary amendments
          by   the    County     Planning     Commission.
          Periodically, and at least once each five years,            Notwithstanding the important contribution
          the General Plan should be thoroughly                    that action statements in Part Two can play in
          reviewed and updated.                                    the eventual implementation of the plan, the
                                                                   following actions are the top priorities which
                                                                   require immediate action. Some of these
          Key Priorities                                           priorities are derived from action statements in
                                                                   Part Two; others are from Part One. As the
             The most    important priorities identified in        following    priorities are completed, new
          this should be included, wherever feasible, in           priorities can be added via the annual updating
          work programs and budgets by the appropriate             process. Most of the proposals for plan
          grganization(s). This list should be annually            implementation are actions that can be taken
          updated and supplemented. A host of worthy               now under existing state laws if local and
          project and program initiatives to help                  county governments will agree and commit to
          implement this plan are included in Part Two.            action. However, the few actions which will
          A Steering Committee member has suggested                require legislative authorization (such as for
          that action statements in Part Two be                    transfer of development rights) are so
          considered as priorities based on the following          important, that significant energy will be
          considerations:                                          needed to help achieve enactment of these
                                                                   new tools by working in concert with other
                                                                   local governments across the state.


          The Leelanau General Plan - Implementation                                        General Plan implementation
                                                                                                            Page 15-3








                  development         rights,   development               local plan and regulatory changes to better
                  agreements, concurrency, officialmaps,                  accommodate affordable quality housing
                  urban and general services districts,                   needs.
                  new ways to levy special assessments,
                  and new ways to deal with the
                  interjurisdictional impacts of large scale           This General Plan represents thousands of
                  developments.                                        hours of input by hundreds of citizens in
                                                                       Leelanau County over the past three years.
                  to authorize changes to the County                   The circumstances it is intended to address did
                  Planning Act to permit expanded                      not occur overnight and they will not be
                  membership on the County Planning                    resolved overnight.
                  Commission.


          ï¿½   Refinement of a peninsula-wide transfer of
              development rights (TDR) program. The                    Concluding Thought
              significant equity issues associated with
              land use restrictions on large landowners                   This General Plan represents thousands of
              without       corresponding        mechanisms            hours of input by hundreds of citizens in
              permitting them to capture development                   Leelanau County over the past three years.
              value (without actually developing the land)             The circumstances it is intended to address did
              require that the effort to generally get                 not occur overnight and they will not be
              passage of TDR legislation be pursued                    resolved overnight. Yet it sets forth an
              vigorously.                                              alternative option to the future that will be
                                                                       created if existing trends continue (see
          ï¿½   Organization and support for a county                    Working Paper #5). Existing trends are fueled
              chapter of the Michigan Society of Planning              to a very great extent by existing plans,
              Officials (possibly to be called the Leelanau            regulations and institutional relationships. To
              Society of  Planning Officials - LSPO). Such             create a future different from existing trends,
              an organization would work with the                      current    plans,    policies,   regulations and
              County Planning Commission and receive                   institutional    relationships must also be
              support     from     the    County       Planning        changed. This General Plan proposes an
              Department          in  development           and        alternative structure based on considerable
              implementation       of   periodic     education         input and thoughtful consideration by Leelanau
              programs for planning commissioners,                     County citizens. It offers an opportunity for
              elected officials and citizens on a wide                 citizens to choose a different future with a
              variety of planning, economic development,               mechanism to put that choice into place.
              and regulatory issues.

          ï¿½   Development         of  an    official    county
              newsletter with information on projects and
              related efforts in planning.

          ï¿½   Development and passage of a new
              ordinance to require septic systems to be
              inspected at the point of sale of the
              property on which they are located. If
              substandard, to require their being brought
              up to code prior to the closing.

          * Assistance to villages and townships in



          The Leelanau General Plan - Implementation                                              General Plan Implementation
                                                                                                                   Page 15-5

















                                                                                                                                                                                                                                                     J-4

















                                                                                                   O"t

                                                                                                                                                                                                                                                @Jy



                                                                                                                        APPENDICES








                                                        Appendix A

                                       MEMORANDUM OF UNDERSTANDING
                                      Concerning the Development of a County-wide
                                      Growth Management Plan for Leelanau County



          BACKGROUND



             A COUNTY-WIDE GROWTH MANAGEMENT PLAN is a document prepared following extensive
          study by many individuals and advisory committees representing all communities in the County
          (whose work will result in separate working papers) which sets forth the following:

          ï¿½  Those elements of the built and natural environment which are systemic and interjurisdictional in
             nature, and without the wise management of which persons presently living and those yet unborn
             are less likely to enjoy a. quality of life at least as good as that enjoyed by those families and
             individuals presently living in the County.

          ï¿½  An action program for public and private efforts to guide future growth so that an adequate
             balance between necessary sustainable development and environmental protection is achieved.

          ï¿½  A practical, workable program for local control of land development decisions which is consistent
             with the county-wide growth management plan, which recognizes the unique perspective and
             responsibilities of each local government, and which ensures that matters with impacts beyond
             the jurisdiction of the community in question are examined to the mutual satisfaction of all
             affected communities before final decisions are made.


          ï¿½  A mutually agreed-upon approach for guiding the rate, timing and location of new development
             into areas of the County that can efficiently provide necessary services in a manner harmonious
             with that natural character of the area without unnecessary expenditures of public tax dollars or
             corresponding loss of constitutionally protected private property rights.

             FULLY PARTICIPATE IN means that a community within the County will appoint representative(s)
          to the advisory committees and steering committee as requested, and that said representative(s) will
          make every effort to both attend and inform the governing body and planning commission in a timely
          manner of all activities, issues and actions taken or pending in the development of a county-wide
          growth management plan.



          BASIC PARTICIPATION


             Basic participation in the growth management planning process shall be made available, without
          a cash contribution required, to the local government whose legislative body has indicated their desire
          and intent to fully participate in development of a county-wide growth management plan by
          approving this document.

          The specific terms and conditions of basic participation in the growth management planning process
          including all mutual understandings of the County and the City of Traverse City are as follows:



          The Leelanau General Plan                                                                          Appendix A
                                                                                                               Page A- I











         GENERAL PROVISIONS


            The parties hereto mutually recognize that the participation in the growth management planning
         process conveys no authority to the county to supervise or otherwise direct or interfere in the (Name
         of Community) planning and implementation activities over and above the provisions of current state
         law.



            Similarly, the parties recognize that initiatives/resources referred to in this document are
         exclusively focused on the growth management planning project and that mutual participation in the
         process creates no new obligations with respect to mutual assistance in implementing the (Name
         of Community) current planning programs or land use regulations. Further, it- conveys no authority
         for local jurisdictions to direct the work of county planning department personnel or to secure
         materials from the county planning department on other than a materials/copying cost reimbursement
         basis.



            It is further mutually recognized that the commitments made herein are primarily focused on
         intergovernmental cooperation during the preparation of a county-wide growth management plan and
         that the (Name of Community) expressly reserves its right to sever further participation in the
         county-wide growth management process at the completion of the county-wide Growth Management
         Plan.





         GENERAL UNDERSTANDINGS



            We hereby acknowledge the culmination of a significant endeavor to define the responsibilities and
         coordinate the ef forts of the citizens of Leelanau County; along with all units of government; whether
         of township, village, city or county origin to create an economically, socially and environmentally
         sound future for Leelanau County. Our further intention is to nurture the working relationship among
         all groups so as to establish an equitable and successful ongoing method of managing county growth
         for the benefit of both current and future generations.


            We further acknowledge that in order for this to be successful, it is essential for all individuals
         and/or units of government to realize that the process is being structured by human beings and
         consequently will be neither perfect in form nor a panacea. Our single most important purpose is to
         continue to maintain our quality of life to insure that our communities and countryside are passed
         onto our children in as good or better a condition as we received it from those who came before us.


            We further acknowledge that a high level of open, honest and frequent communication between
         all involved parties is of paramount importance to the success of this endeavor. We also realize that
         this communication will not come to fruition unless we accept the premise that accurate information
         and ideas should change hands freely. We are fully committed to participation in the county-wide
         growth management planning process during preparation of the Growth Management Plan.




         The Leelanau General Plan                                                                    Appendix A
                                                                                                         Page A-3








                                                         Appendix B

                                         HISTORY OF THE GENERAL PLAN
                                                  PLANNING PROCESS


          INTRODUCTION


             In June, 1989 Leelanau County officially began a project ultimately designed to revise its outdated
          Comprehensive Development Plan. County officials agree the Plan currently in effect, adopted in
          1975, does not provide adequate guidance for today's decisions. During the past several years
          development-related controversies have flared in virtually all areas of the County. County officials
          and an increasing number of permanent and seasonal residents believe those controversies are due,
          in part, to the lack of an overall "plan" or system for dealing with the managen ent of the growth that
          is occurring. The county's popularity and desirable location are contributing to the problem.
          Increasing population and inadequately directed growth have great potential to exert significant
          pressure on the "quality of life" which has historically been Leelanau County's hallmark.



          OPPORTUNITY FOR CREATIVE PLANNING


             When considering this essential planning project, County leaders saw an opportunity to approach
          comprehensive planning in a unique way. The traditional approach to community planning assumes
          an internal effort by the responsible governing agency. Generally speaking, this approach often
          means less risk, less chance for criticism and opposition from administrators or elected officials. As
          stated in the text Taking Charge: How Communities are Planning their Futures, the newer, more
          open approaches (such as that being undertaken in Leelanau County) bring to the planning effort the
          combined res-ources of the community - both public and private. These strategies require new
          management approaches and techniques. Progress is made by consensus rather than by directive.
          Those involved in managing the project master new methods of leadership, taking risks by giving up
          some traditional control but increasing the likelihood of positive community support and benefit.

             Ideally, this technique would involve all of the local units of government in the county in a
          consistent, integrated approach to growth management. The best way to accomplish this goal is to
          involve as many county citizens as possible in the actual thinking process.

             Involving people in the planning process means acknowledging that everyone has something of
          value to contribute. This system seeks to avoid setting up citizens, developers, environmentalists,
          or local governments as "the enemy". Recognition of this fundamental can change the dynamics of
          growth management from "us against them" to "we're all in this together."

             Those involved in planning realize a successful community planning program does not simply
          "happen." Project supporters must develop an understanding of growth policies as they currently
          exist. They must also be willing to communicate their concerns and ideas, work with anyone else
          officially or unofficially associated with the plan, and be willing to develop an understanding with
          fellow citizens regarding issues of conflict.



          CITIZEN ADVISORY COMMITTEE AND GENERAL PLAN STEERING COMMITTEE


             At the beginning of the Leelanau program an informal stakeholder analysis was performed to


          The Leelanau General Plan                                                                          Appendix B
                                                                                                               Page B-1









         interjurisdictional commitment. The City of Traverse City, having recently annexed some 235 acres
         in Leelanau County, was also asked to consider participating in the program.

            In March, 1991 the county staff secured Memorandums of Understanding from all sixteen (16)
         Leelanau county municipalities. With this unprecedented vote of support, the county adopted a work
         program for the final phases of the project. The 70-member steering committee was established to
         help write the plan. The steering committee, like the CAC, is composed of a representative cross
         section of county citizens, government officials and interest groups. Through the Memorandum of
         Understanding, each municipality agreed to appoint three individuals to the steering committee
         including one elected official, one planning commission member, and one citizen at large.

            While public participation events continued throughout the county, data base and GIS work was
         conducted in order to establish the most accurate and reliable information. system possible. This
         unprecedented data collection effort resulted in five (5) additional working papers documenting
         economic trends, transportation and infrastructure status, environmental conditions, land use trends,
         and demographics. The information collected is available in many forms to all interested public and
         private agencies as well as the public at large. -

            Finally, the project has set forth a mechanism designed to develop an understanding and
         agreements regarding the roles and respective responsibilities of all local government units where land
         use decisions are concerned. In all likelihood, achievement of such goals will increase municipal
         efficiency in an economical manner while fostering a strong spirit of intergovernmental coordination.





































         The Leelanau General Plan                                                                     Appendix 8
                                                                                                         Page B-3








                                                    Appendix C

                              LEELANAU GENERAL PLAN WORKING PAPERS




         Leelanau General Plan Working Paper #1: Results of the Growth Management Forums

            This document is the first of a series of working papers prepared by Leelanau County staff
         members and project consultants as part of the process to create the Leelanau General Plan.
         Working Paper #I summarizes and provides an analysis of a series of ten (10) Growth Management
         Forums conducted throughout Leelanau County on December 1, 1989 and during the month of
         February, 1990. The guiding objective of Phase I of this planning process was the identification of
         what has been termed the "best choice growth management approach" for Leelanau County.


         Leelanau General Plan Working Paper #2: A Survey of Residents Concerning Issues Relating to Long-
         Range Planning in Leelanau County

            This survey of Leelanau County residents conducted by Anderson, Niebuhr and Associates, Inc.
         of St. Paul, Minnesota provides information regarding residents' opinions about important issues
         relating to the quality of life in Leelanau County. Specifically, information was obtained concerning
         preferences for types of development in the county, residents' satisfaction with county services,
         opinions about the impact of future developme    *nt, and preferences for development controls. In
         addition to providing information about county residents as a whole, the survey results provided
         information about various subgroups of residents.

            The survey of Leelanau County residents was conducted using Anderson-Niebuhr's established
         mail survey methods from March through April, 1990. Using this method, an overall response rate
         of 92 percent was achieved. Because such a high response rate to this scientific survey was
         achieved, county representatives are assured that non-response bias is not a factor and that the data
         accurately represents the opinions of Leelanau County citizens as a whole.


         Leelanau General Plan Working Paper #3: A Survey of Local Officials Concerning Issues Relating to
         Long-Range Planning in Leelanau County

            In conjunction with the survey of residents conducted by the county, a survey of local officials
         was also conducted using the same questionnaire. Of the 174 local elected officials and planning
         commission members in Leelanau County, about 68 percent responded to this survey. Presented
         in this report are summaries of the descriptive results for the local official survey and results of
         statistically significant analyses comparing responses of local officials with responses of county
         residents.



         Leelanau General Plan Working Paper #4: Final Recommendations of the Citizen Advisory Committee

            This document is the fourth of a series of working papers prepared for Leelanau County as part
         of this planning process. Working Paper #4 summarizes and provides an analysis of a series of ten
         (10) recommendations of the Leelanau General Plan Citizen Advisory Committee.


         The Leelanau General Plan                                                                   Appendix C
                                                                                                       Page C- 1








         Leelanau General Plan Working Paper #8: Transportation, Public Facilities, and Physical Services

            Working Paper #8 is composed of seven chapters reporting on the state of facilities and services
         provided by local municipalities, those provided by the county, the transportation network, schools,
         non-municipal public services, solid waste management facilities, and state and federal lands. This
         document is virtually a Leelanau-specific encyclopedia of data in these subject areas.


         Leelanau General Plan Working Paper #9: Natural Resources and the Environment

            In its five chapters, Working Paper #9 addresses Leelanau County's environment and natural
         resources. Climate, geology, topography, and drainage are discussed in the first chapter while
         discussion of natural resources, environmentally sensitive areas, and air and water quality are covered
         in following chapters. The summary chapter reviews the issues raised in the preceding chapters and
         identifies problems and opportunities for Leelanau County. The summary also relates the significance
         of the information presented in the working paper to future development activity in the county.


         Leelanau General Plan Working Paper #10: Land Use

            The six chapters of Working Paper #10 address land use activities and issues on the Leelanau
         Peninsula. Community character and open space, land use, land division and construction activity,
         land valuation, and growth projections are discussed. The final chapters offers comparison and
         analysis of local land use policies and regulations and discussed their cumulative impact on the
         peninsula.


         Leelanau General Plan Working Paper #11: Demographics

            Working Paper #11 details demographic characteristics of the peninsula's population. Based
         primarily on the 1990 census, population, age, households, housing, education and income, and
         occupations and industry are all addressed. A summary chapter reiterates the key population
         attributes. A series of tables follows in an appendix offering detailed information on the population
         characteristics of each local municipality in the county.



         Leelanau General Plan Working Paper #12: Development Alternative

            As the final Working Paper of the series, this document summarizes alternative land use patterns,
         alternative futures, and alternative institutional arrangements for guiding growth on the Leelanau
         Peninsula. The chapters contained in this working paper specifically discuss the process used in
         developing the alternative futures, the nine alternative land use patterns developed for analysis, a
         description of the "preferred future," the process used to develop the policies and action statements
         of the Leelanau General Plan, a description of problems associated with current institutional
         arrangements, and finally the institutional alternatives for Plan implementation.









         The Leelanau General Plan                                                                    Appendix C
                                                                                                         Page C-3








                                                     Appendix D

                                    DEFINITION OF TERMS AND PHRASES




            The following terms and phrases are used throughout the Leelanau General Plan and its associated
         working papers. These definitions should be referenced to promote consistent interpretation of the
         Plan and supporting data. Source materials referenced to define these terms and phrases included
         the following:

            Emmet County/City of Petoskey Comprehensive Plan (draft, 1994)
            Encyclopedia of Community Planning and Environmental Management 0 684)
            Existing Growth Management Techniques and Proposed Legislation for Michigan (1990)
            MSPO Community Planning Handbook (1992)
            Protecting Inland Lakes: A Watershed Management Guidebook (1990)


         Abutting property: A parcel of land that is contiguous to another parcel of land along a common
         boundary line.

         Access control regulations: A standard designed to manage the means of entering and exiting
         property by way of a public road.

         Access road: The functional classification identifying road segments that serve to provide passage
         to and from any land use setting.

         Accessory apartment: An independent dwelling unit developed in connection with an existing single-
         family home.

         Accessory use: A land use whose purpose is related and incidental to the permitted principal use.

         Accident rate: The calculation of the number of vehicular accidents that occur at particular locations.

         Acid rain: Precipitation that is made much more acidic than usual when water vapor in the
         atmosphere combines with sulfur oxides and nitrogen oxides to form sulfuric and nitric acids, which
         are carried to the earth's surface.


         Acre: A plainer unit of measure equal to 43,560 square feet.

         Act 307: The Michigan Environmental Response Act (Act 307 of the Public Acts of 1982, as
         amended)

         Act 307 site: A single location within a list of surface and groundwater contamination sites in
         Michigan, as annually published by the Michigan Department of Natural Resources.

         Adjudication: To arbitrate or referee.

         Administrative center: A location at which activities and official functions are conducted, such as
         a township hall, village hall, government center, etc.


         The Leelanau General Plan                                                                     Appendix Z5
                                                                                                         Page D- I









         Budget: A financial plan that correlates anticipated revenues and expenditures and serves as a basis
         for decisions on future expenditures.

         Buffer area: A strip of land, usually a landscaped open area, designed to separate incompatible land
         uses.


         Buildable area: The land area of a given lot that is potentially available for construction after all
         zoning and other municipal requirements have been fulfilled.

         Building: A structure that is permanently affixed to the ground, has a roof and is used for the shelter
         of humans, animals, property or goods.

         Buildout population: The potential population of a community based on current planning and zoning
         practices.

         Built environment: All elements of the man-made environment (including buildings and streets) that
         involve some application of human effort and technology toward their design, construction, or
         manufacture.


         Bylaws: A set of rules that provide for the organization and ongoing operations of a legal body or
         entity. (see rules of procedure)

         Campground: A public or private open area divided into campsites that, at a minimum, provides a
         potable water supply and some form of toilet facilities.

         Capacity: The maximum number of people or things that can comfortable or safely use any facility.

         Capital Improvement Program (CIP): A multi-year program of proposed capital expenditures used as
         a programming guide for public improvements of which the first year of the program is the capital
         portion of the annual budget.

         Capital improvements: Physical facilities or other fixed assets with relatively long-term usefulness,
         such as buildings, land, parks or roads.

         Carrying capacity:     The capability of a system to absorb any, or increased, population and
         development within the parameters of an acceptable environment.

         Census: The periodic enumeration of the entire population, selected sub-populations or other
         specialized items, to produce a data base.

         Census tract: An area used for census data presentation that contains an average of 4,000 people.

         Central business district (CBD): The traditional business core of a community, characterized by a
         high concentration of activity within a relatively small area.

         Chamber of commerce: A voluntary association of businesspersons whose objective is to promote
         the interests of the commercial and industrial sectors of a community.





         The Leelanau General Plan                                                                     Appendix 15
                                                                                                         Page D-3








         Compact Development: This pattern consists of highly organized, concentrated development where
         property utilization is maximized within a defined setting. The concept assumes a relatively self-
         contained development with its own set of services and potentially its own community service
         center. Edges are well defined and surrounded by open space land. This pattern is generally found
         where a center (town, village, city) already exists and services are extended beyond existing
         boundaries as appropriate to accommodate new growth and development. Compact development
         tends to be the most efficient, least expensive to service, and the least disruptive pattern of
         development impacting use of adjoining lands.

         Composting: A means of converting organic materials, such as solid waste, leaves and yard
         clippings, into an odor-free and sanitary soil conditioner.

         Comprehensive Plan: A plan for the future physical development of a community which seeks to
         consider all the relevant factors that currently, or in the future, may influence or change quality of
         life in the community. (see functional plan, growth managment plan, land use plan, master plan,
         policy plan, strategic plan and subarea plan)

         Concurrency of services and facilities: A requirement that services and facilities necessary to serve
         new development are available concurrent with the onset of the demand for such services and
         facilities by the new development.

         Condominium: A form of housing ownership by which a person may purchase and own one dwelling
         unit in a multi-unit building or development.

         Confiscatory regulation: Restrictions or limitations placed upon the use of property that prevent a
         landowner from making any economically reasonable use or deriving any economically reasonable
         return from his/her property and that amount, in effect, to a taking of the property.

         Conflict resolution: The satisfactory settling of disputes that can occur among groups in order to
         attain a particular end result.

         Conservation easement: An easement, granted by the owner of property, that is designed to limit
         or preclude future development of the property.

         Consultant: An individual or business contracted to provide special skills not available among staff
         members or to undertake a specific project for which the agency has insufficient staff.

         Contaminant: A substance that causes pollution or diminished quality when brought into contact
         with air, water, soil or other aspects of the environment.

         Contour line: Lines that appear on a topographic map and link points that are of an equal elevation
         above or below sea level.


         Contour interval: The distance between contour lines.


         Contract zoning: A situation where conditions are imposed that are not usually applied to land in a
         particular zoning district or in which a contract is made between the municipality and the landowner.

         Corridor: A defined strip of land often associated with a transportation route.




         The Leelanau General Plan                                                                   Appendix
                                                                                                       Page D-5









         Dead-end street: A public way that has only one outlet.

         Debt service: Periodic payments, consisting of interest plus a portion of the principal that is owed,
         necessary to amortize the debt.

         Decibel: A unit of measurement for sound pressure or the relative loudness of sound.

         Dedication: The transfer of land or an interest in land by its owner to public ownership, to be used
         for public purposes.

         Deed: A written instrument by which the owner of real estate conveys his/her land, or an interest
         in the land, to another.


         Demography: The study of population and its characteristics.

         Density: A ration of population, residential units or floor area of development as to a unit of land
         area.


         Density transfer:    The transfer of unused development potential, either internally within a
         development or externally from one site to another.

         Department of Commerce: State and/or federal level agencies with responsibilities related to
         domestic and international commerce, economic growth, technological development and tourism.

         Department of Housing and Urban Development (HUD): The cabinet-level department that is
         responsible for the majority of United States housing and community development programs.

         Department of Natural Resources (DNR): A state agency empowered with administrative and
         enforcement authorities and responsibilities, primarily concerned with the natural environment.

         Department of the Interior: The cabinet-level department that is responsible for diverse programs,
         largely related to the protection and management of natural resources and public land.

         Department of Transportation (DOT): State and/or federal level agencies that establish transportation
         policy for all modes of transportation and conducts research and grant programs.

         Design standard: A set of guidelines defining parameters to be followed in the design of a building
         or development.

         Development: 1. A planning or construction project involving property improvement and, usually,
         a change in land use character within the site. 2. The act of using land for building or extractive
         purposes.

         Development agreement: An arrangement which is voluntarily negotiated and entered into between
         a municipality and a developer, providing certain commitments by the municipality in exchange for
         commitments by the developer.

         Development right: A separable property right like an easement or mineral right.

         Driveway: A private road that gives access to property abutting a thoroughfare.


         The Leelanau General Plan                                                                   Appendix 75
                                                                                                       Page D-7








         Equalization rate: The average percentage of the full value at which the local assessor is assessing
         all taxable properties in a municipality.

         Eutrophication: The process by which nutrients stimulate aquatic plant growth and lead to the aging
         of a lake.


         Ex-officio: The membership of a person on a board or commission by virtue of holding another
         position that is related to the work of that board or commission. In many cases, ex-officio members
         are not given a vote on the board or commission.

         Exclusionary zoning: Zoning regulations that have the effect of precluding certain population
         segments from residential opportunities enjoyed by others.

         Exclusive-use zoning: The practice of creating zoning districts in which only one type of use or a
         narrow range of uses is permitted.

         Facade: A building's front or any of its exterior walls.

         Farmland protection: Measures taken by government to protect prime agricultural land from
         urbanization.


         Feasibility study: A study of the possibility of implementing a particular project.

         Federal Aviation administration (FAA): A division of the Department of Transportation with the
         responsibility of fostering aviation safety, advancing civil aviation and a national system of airports,
         and achieving efficient use of navigable airspace.

         Federal Emergency Management Agency (FEMA): A United States agency responsible for federal
         programs related to emergency and disaster mitigation and response.

         Fee simple: The term referring to the broadest, most extensive and unconditional estate in land that
         can be enjoyed.

         Fill: Material that has accumulated or is disposed of at a site and has the effect of raising the ground
         elevation, or that is deliberately added to a site to improve its suitability for construction.

         Fire Department: A municipal agency responsible for fire fighting, maintenance of fire fighting
         equipment and fire prevention programs.

         Fiscal impact analysis: An analysis of the impact on a municipal budget of the cost of expanding
         municipal services to meet the needs of a proposed development.

         Fiscal year: A 1 2-month accounting period which may or may not match the calendar year.

         Flood Hazard Boundary Map: A map that outlines the approximate areas of a community considered
         to be flood-prone.

         Flood Insurance Rate Map: A map that depicts in detail the boundaries and elevations of the 100-
         year and 500-year floodplains for a particular community as part of the National Flood Insurance
         Program.



         The Leelanau General Plan                                                                     Appendix
                                                                                                          Page D-9








         Groundwater pollution: Destruction of subsurface water supplies by contamination.

         Growth Management: A strategic process for managing the rate, location, amount and timing of
         growth in accordance with a Comprehensive Plan.

         Growth Management Plan: A plan, usually prepared as a supplement to or a part of a comprehensive
         plan, that includes timing and phasing elements for new public facilities and services. (see
         comprehensive plan, functional plan, land use plan, master plan, policy plan, strategic plan and
         subarea plan)

         Guidelines: General indications of the policies that a government agency endorses, as opposed to
         specific quantitative standards or regulations.

         Hazardous waste: Those wastes that can cause or help to cause illness or death, or that, in the
         absence of proper management, represent a significant threat to either human health or the
         environment.


         High Risk Erosion Areas: Those shoreland areas with the most acute tendency to erode, generally
         defined at a rate of one foot of erosion or more per year.

         Highway capacity: The amount of traffic that a road, or section of road, is capable of carrying in an
         hour.


         Historic district: . An area that is related by historical events or themes, by visual continuity or
         character, or by some other special feature that helps give it a unique historic identity.

         Home occupation: A type of limited commercial activity that is carried on within an individual's
         dwelling.

         Home rule: The concept of local government's exercising certain powers conferred by the state.

         Housing authority: An official body, created under state law, that is eligible for federal support to
         provide decent, sanitary housing for low-income persons.

         Housing stock: The total supply of dwelling units within a given locality.

         Impact assessment: An evaluation of the future consequences of a proposed land development.

         Impervious surface: Surfaces such as concrete or asphalt-paved streets or parking lots that prevent
         rainfall from infiltrating the soil and can increase the amount of runoff dramatically.

         Incentive program: A program in which a developer receives bonuses, typically permission to build
         at a higher density or higher floor area ratio, in exchange for offering certain types of amenities that
         the community considers important.

         Incubator building: A building that offers space at low rentals and is consequently attractive to small,
         newly formed businesses.

         Industrial area: That part of a municipality that is zoned to permit certain types of industries, often
         specified as light industry, heavy industry, or industrial park use.


         The Leelanau General Plan                                                                      Appendix T)
                                                                                                         Page D- 11








         Land use plan: A map and accompanying text depicting the        if preferred future" of a community. It
         describes how the community would like to grow or change. (see comprehensive plan, functional
         plan, growth managment plan, master plan, policy plan, strategic plan and subarea plan)

         Level of service (LOS): The degree to which a public service is operating, or the "adequacy" of the
         service.


         Limited Service District: A defined area where limited public services are provided to solve a specific
         problem or meet a special need. These areas often have the same intensity of land use activity after
         the public service has been instituted (e.g., providing sanitary sewer to properties around an inland
         lake). (see partial service district)

         Local governments: Levels of government below the state level that derive their powers from the
         state charter or state law. (see county, township, city and village)

         Major arterial: The functional classification identifying road segments that convey traffic between
         municipal boundaries and activity centers, and provide connections with intrastate and interstate
         roadways.

         Major collector: The functional classification identifying road segments that carry and distribute
         traffic between access roads, minor collectors, and minor arterials.


         Marsh: Wetlands that have grass-like plants such as cattails, rushes and reeds and are sometimes
         covered by water.

         Master plan: A comprehensive, long range plan intended to guide change in a city, village, township,
         countyorregion. (see comprehensive plan, functionalplan, growth managmentplan, land use plan,
         policy plan, strategic plan and subarea plan)

         Mesotrophic lake: A lake that is changing from the oligotrophic stage, characterized by clear waters
         and low levels of nutrients to the eutrophic stage, which has higher levels of nutrients, extensive plan
         growth, and murky waters.

         Michigan Resource Inventory System (MIRIS): An automated land use and land cover mapping
         system for use by agencies, individuals, and local units of government involved in resource and land
         management.

         Michigan Society of Planning Officials (MSPO): An organization of 4,000 members dedicated to
         promoting sound community planning that benefits the residents of the state.

         Minor arterial: The functional classification identifying major "feeder" streets.

         Minor collector: The functional classification identifying road segments that provide access to
         individual parcels and carry traffic to and from access roads.

         MSU Extension Service: A county-level office affiliated with Michigan State University that is
         responsible for the dissemination of information on current agricultural and conservation technology.

         Municipality: Any local government.



         The Leelanau General Plan                                                                     Appendix 5
                                                                                                         Page D-13









        Percolation: Downward movement of water through rock or soil interstices.

        Plan implementation: The process of translating a plan into action which, ideally, begins at the start
        of plan development.

        Planned Unit Development (PUD): A type of development characterized by comprehensive planning
        for the project as a whole, clustering of structures to preserve usable open space and other natural
        or cultural features. There is also often a mixture of housing types and sometimes a variety of
        nonresidential development on the same property.

        Planning area: The specific geographic area selected as being pertinent to the study of a particular
        problem.

        Planning commission: An appointed board of citizens that, depending upon government organization,
        either has direct control over certain planning functions or has and advisory or policy-making role.

        Planning department: A government agency responsible for long-range and short-range land use
        planning, land use development management, coordination of various projects, and coordination of
        various and different units of government.

        Plat: A map or series of maps showing the layout of a proposed or approved subdivision.

        Point source: An individual and distinct conduit - such as a pipe, culvert or ditch - through which
        water pollution can reach a waterway.

        Police power: The inherent authority reserved to the states in the Tenth Amendment to the United
        States Constitution to adopt laws for the purpose of promoting the protection of the public health,
        safety, morals and welfare.

        Policy plan: A document based on explicit statements of local goals, objectives and policies. They
        may be part of a comprehensive plan or a freestanding document. (see comprehensive plan,
        functionalplan, growth managmentplan, land use plan, masterplan, strategic plan and subarea plan)

        Potable water: Water fit for human consumption.

        Poverty level: A term used to designate an income level necessary to support a minimum acceptable
        standard of living in a particular area or country.

        Public Act 116 (PA 116): The Farmland and Open Space Protection Act (Act 116 of the Public Acts
        of 1974, as amended). PA 116 provides farmers the opportunity to enroll land in the program for
        periods from ten (10) to ninety nine (99) years in return for a tax credit.

        Public hearing: A formal meeting of a legislative or administrative body as part of the process by
        which legislation or regulations are adopted or other decisions are made.

        Public infrastructure: The services and facilities provided by a level of government.

        Public service district: A defined area where prescribed public services are or will be provided to
        encourage compact development, meet the needs of users, and limit costs to the tax payers.



        The Leelanau General Plan                                                                    Appendix 5
                                                                                                      Page D-15








         settle out of suspensions and are transported, through the forces of erosion.

         Septic tank: An underground, on-site sewage treatment facility designed to anaerobically treat raw
         sewage generated by a single residence or other small development and store the sludge that is
         produced.

         Settlement: A small, relatively isolated communi   -ty which may not have an associated commercial
         center, typified by clusters of residential parcels of 1/2 to 5 acres in size.

         Shoulder: An area at the side of a road designed to accommodate a standing vehicle.

         Site plan: An accurately scaled development plan that illustrates the details of a proposed or existing
         development.

         Site plan review: The procedure in which proposed site plans are reviewed for compliance with all
         requirements of the zoning ordinance and other appropriate municipal ordinances.

         Slope: The inclination of the ground from the horizontal.

         Soil association: A group of soils that have been defined and that occur together in a characteristic
         pattern in particular geographic areas.

         Soil classification: A method of grouping and categorizing different soil types.

         Soil Conservation District: The local organization, typically managed by a board or committee,
         through which both federal and state agencies provide assistance to municipalities and landowners.

         Soil Conservation Service:       An agency within the Department of Agriculture that makes
         recommendations on land conservation and pollution abatement practices.

         Soil erosion: The process by which soil particles are weathered and broken down, then transported
         by wind or water.

         Soil survey: A detailed and systematic inspection of soils, both in the field and in the laboratory, in
         order to analyze and describe their characteristics, classify them, map their boundaries and interpret
         their ability to various types of agricultural and urban uses.

         Solid Waste: Garbage, rubbish, ashes, incinerator ash, incinerator residue, street cleanings, municipal
         and industrial sludges, solid commercial and industrial waste, and animal waste.

         Solid waste management: The systematic procedures by which solid waste is collected, processed,
         and disposed of.

         Solid Waste Management Act: A law designed to protect the public health and environment, to
         provide for the regulation and management of solid wastes, to prescribe the powers and duties of
         certain state and local agencies and officials and to prescribe penalties for violation of the Act (Act
         641, P.A. 1978, as amended).

         Spot zoning: The assignment of a zoning classification different from the surrounding zoning
         classifications to a relatively small land parcel.



         The Leelanau General Plan                                                                    Appendix
                                                                                                       Page D- 17








         Tax-increment financing: A means of financing redevelopment projects in which an area is improved
         with the proceeds of a bond issue slated to be repaid by the additional taxes the new development
         is expected to generate.

         Topography: The collective physical features of a geographic area.

         Township: Subdivisions of counties that act as a principal level of local government.

         Transfer of Development Rights (TDR): A system designed to permit the sale of the right to develop
         a parcel in a sending zone to another parcel in a receiving zone. The transaction results in the seller
         capturing the development value of land without conversion of the land to a more intensive use, and
         the buyer being permitted to build at a higher density than local regulations would otherwise permit.

         Transportation System Management (TSM): A form of transportation planning in which all
         transportation modes and systems are coordinated and upgraded to obtain greater efficiency and
         effectiveness.     TSM includes automated traffic signalization, adjustment in alignments, lane
         improvements, and turning movement control. This method is usually used in lieu of or as a
         complement to major capital improvements.

         Urban center: The economic core of a region, characterized by a high concentration of activity that
         may be but is probably no coterminous with municipal boundaries.

         Urban Service District: A defined area where a full range of public facilities are anticipated with the
         objective of encouraging concentrated development patterns in a safe, efficient and cost effective
         manner.
  is     USGS maps: A wide variety of topographic maps, as well as many other types of maps for special
         purposes, provided by the United States Geological Survey.

         Utility easement: An easement acquired by a utility for the location of transmission lines, pipelines,
         and other utility facilities.

         Viewshed: A region that encompasses landscape elements that are visible from a particular point.
         The viewshed is usually bounded or defined by the horizon in thb-distance and its scope or width is
         often delineated by trees, buildings or other obstructions. The viewshed often follows natural land
         forms such as valleys, hillsides, lakes, meadows or fields.

         Village service district: The bounds within which a local municipality intends to introduce new or
         expanded public services to support a village development pattern.

         Village: An incorporated urbanized area typically smaller than a city.

         Vision Statement: A written narrative describing in visual terms, all of the characteristics of a
         community at a defined future point in time. The statement usually describes natural, cultural,
         physical, social and economic conditions as ideally desired by the community. The statement is used
         as a means to build a consensus within a community; to define more accurately the goals of the
         community; to provide a reference tool that can be used by community leaders to share and evaluate
         their vision with area residents; and to measure progress made toward that future.

         Vista: A view to or from a particular point.


         The Leelanou General Plan                                                                         Appendix 5
                                                                                                            Page D- 19






                                                      CHRONOLOGY
                                                           OFTHE
                                              LEELANAU GENERAL PLAN



              The following chronology outlines the history of the General Plan process:

              KEY PRELIMINARY EVENTS


              Date                    Event


              01/88                   Leelanau County Chamber of Commerce initiates Economic Development Task
                                      Force (EDTF)

              02/88                   Leelanau County Board of Commissioners appoints EDTF members

              03/88-04/88             Economic Development Forums held in Northport, Suttons Bay, Glen Arbor and
                                      Greilickville


              06/88                   Final Report of the EDTF presented to County Board. Among the resulting
                                      action recommendations:
                                      Targetfor completion by mid-1991 an updated Leelanau County Comprehensive
                                      Plan based on a state-of-the-art approach emphasizing maximum feasible public
                                      participation ri. e. public forums1task forces, etc.); Create specific growth
                                      management tools such as:
                                              automatedfintegrated land information system (providing inquiry access
                                              to this system for townships, villages, soil conservation district and
                                              cooperative extension offices).
                                              growth impact assessment toollprocedure based on the integrated land
                                              management information system forecasting both economic and
                                              environmental impacts ofproposed developments.

              10/89                   Planning Commission and County Board select initial members of the Citizen
                                      Advisory Committee. Over 65 apply for the 33 available seats.

              12/89                   "Kick-off" meeting of CAC. Attendance = 60 persons. Mark Wyckoff,
                                      President of Planning and Zoning Center, Inc., is featured speaker.

              02/90                   12 Growth Management Forums are held attracting over 265 participants
                                      throughout the County. Working Paper #1 documents the results.

              05/90                   Citizen and local official surveys are completed.     Anderson, Niebuhr and
                                      Associates, Inc. of St. Paul, MN achieve 92% response rate among citizens
                                      surveyed and 68% response among local elected officials and planning
                                      commission members. Working Papers #2 and #3 document the result.

              04/91                   Final Report of the CAC is approved by the Committee. The recommendations
                                      of the CAC are as follows:


                                              Begin woric on a unified physical County comprehensive land use plan based on the
                                              characteristics of a policies plan, strategic plan and growth management plan.





                 Chronology of the
                 Leelanau General Plan
                 Page 2





                                                  Promote growth management in the County in terms of the County as a geographic unit,
                                                  not simply as a governmental unit.

                                                  Invite, encourage and promote participation of county, township and village officials in the
                                                  county-wide growth management planning process.

                 05/91                    The sixteenth (and final) county municipality agrees to participate in the planning
                                          process. All municipalities have now agreed to take part in the development of
                                          the Leelanau General Plan.

                 05/91                    County Board and Planning Commission adopt the Work Program for the final
                                          phases of The Leelanau General Plan.

                 07/91                    Leelanau County and Planning and Zoning Center, Inc. agree to consulting
                                          contract for creation of the Leelanau General Plan.


                 KEY PLANNING hMiESTONES

                 08/91                    Initial meeting of the newly formed Leelanau General Plan Steering Committee.

                 09/91                    The Leelanau Peninsula's "current trend future" is developed. Working Paper
                                          #5 documents the results.


                 09/91                    Following a series of futuring sessions, the Steering Committee develops goals
                                          and objectives for the Leelanau General Plan. Working Paper #6 documents the
                                          results.


                 12/91                    Steering Committee and project staff suggest adding membership of former CAC
                                          to the Steering Committee.       By consensus, CAC members are invited to
                                          participate.

                 05/92                    Project staff present the Economic Development working paper. Working Paper
                                          #7 documents the results.

                 05/92                    Project staff present the Transportation, Public Facilities and Physical Services
                                          working paper. This is the first working paper to make extensive use of the
                                          County's Land Information System. Working Paper #8 documents the results.


                 08/92                    Project staff present Natural Resources and Environment working paper.
                                          Working Paper #9 documents the results.

                 09/92                    Steering Committee meets in first day-long session to begin finalizing the
                                          Leelanau General Plan. A total of over 45 attend this workshop.

                 10/92                    Second of three meetings of the Steering Committee designed to finalize the plan
                                          is held. Nearly 70 people attend this workshop, many attending their first plan-
                                          related event.







              Chronology of ihe
              Leelanam General Plan
              Page 3




              11/92                   Project staff present Land Use working paper. Working Paper #10 documents
                                      the results.


              11/92                   Project staff present Demographics working paper.         Working Paper #11
                                      documents the results.


              11/92                   The second day-long workshop and third of three meetings of the Steering
                                      Committee designed to finalize the plan is held. Nearly 80 people attend this
                                      workshop braving poor weather and the beginning of dear hunting season.

              02/93                   The twelfth and working paper, Alternative Futures, is released to the public.

              10/93                   The draft Leelanau General Plan is released for public review. Over 650 copies
                                      are placed in circulation during the three-month review period.

              11/93                   General Plan Steering Committee meets to offer initial comment on the draft
                                      Plan.


              02/94                   General Plan Town Meetings are held in each County Commissioner District.
                                      Over 250 citizens attend the towns meetings. "Poster Plans" are placed at nine
                                      locations throughout the County for public view.

              03/94                   General Plan Steering Committee meets to review comments regarding the draft
                                      Leelanau General Plan. In total, 94 pages of comments were received and
                                      compiled into Working Paper #13.

              04/94                   The Leelanau County Facilities Strategy/Long Range Plan, Working Paper #14,
                                      is released for public review and comment. Township and village officials are
                                      prompted one last time for comments regarding the General Plan and are notified
                                      of the county's intent to begin official plan review and adoption procedures
                                      prescribed by the County Planning Act.

              05/94                   The General Plan Steering Committee meets to review late arriving comments on
                                      the Plan and to comment on Working Paper #14.

              06/94                   The General Plan Steering Committee meets for the final time to review the
                                      second draft of the Leelanau General Plan, to make any final "fine tuning"
                                      adjustments and to recommend the Plan to the Planning Commission.

              07/94                   The Leelanau County Planning Commission officially adopts the Leelanau
                                      General Plan in compliance with Act 282, P.A. 1945, as amended, the County
                                      Planning Act.









                  LAYERS OF INFORMATION SCHEDULED FOR INCLUSION
                                   ON THE LEELANAU COUNTY LLS




                   Natural Resources and the Enviromment


                   a.      Topography (including steep slopes, ridges, hills, valleys, cliffs, flat areas, rolling terrain)
                   b.      Watercourses (including drains) and watersheds
                   C.      floodplains
                   d.      Wetlands (MMS)
                   e.      Soils by type and location (including acreage totals)
                           1.     Basement limitations
                           2.     Septic limitations
                           3.     Most suitable soils for construction
                           4.     Hydric soils
                           5.     Prime farmlands
                           6.     Prime orchard land
                           7.     Prime forest lands
                           S.     Steep slopes

                   f.      Groundwater vulnerability
                   9.      Water well locations (well log data)
                   h.      High risk erosion areas
                   i.      Critical dune areas (and other sand dunes if any)
                   j-      Woodlands (MMIS)
                   k.      Land cover (MMIS)
                   1.      Sand and gravel deposits
                   M.-     Other mineral deposits
                   a.      Important farmlands as mapped by SCD
                   0.      PA 116 lands
                   P.      Commercial forest lands
                   q-      Surface geology
                   r.      Bedrock geology
                   S.      Unique natural features
                   t.      Unique flora & fauna
                   U.      Wildlife characteristics and distribution
                   V.      Climate (characteristics and seasonal changes)
                   W.      Water quality indicators watercourse
                   X.      Air quality indicators
                   Y.      Groundwater quality Indicators
                   Z.      NPDES permits issued
                   aa.     Lake Michigan lake levels
                   bb.     Inland lake levels
                   CC.     Submerged lands
                   dd.     Fisheries



            2.     Land Use


                   a.      Parcel maps
                   b.      Land use by parcel from tax records using the tax classification type










                             C.        Property value maps based on Equalization Department records.
                             d.        Planning areas (neighborhood) descriptions (if necessary)
                             C.        Activity center analysis
                             f.        Land use analysis; agricultural, forestry, resource based (extractive, oil, gas, sand & gravel, etc.),
                                       residential, commercial, industrial, public and semi-public, vacant/undeveloped
                             9-        Growth pattern analysis and implications
                             h.        Redevelopment analysis (if necessary)
                             i.        Projections by land use type and implications



                   3.        Transportation


                             a.        Existing road network by type and location
                             b.        Existing road right-of-way base map
                             C.        Street classification map
                             d.        Act 51 roads
                             e.        Street ends at water bodies
                             f.        Capacity, service level, condition, traffic counts
                             9-        Needed road improvements by road segment
                             h.        Planned road improvements (CIP schedule) by road segment
                             i.        Existing and projected traffic generation by traffic zone and analysis of implications
                             i-        Projected traffic volumes across the network
                             k.        Existing and projected driving time within the County and within the region (to the extent regional data
                                       is available)
                             1.        Accident data by type and location
                             In.       Relationship to land use
                             n.        New facilities needed if projections are realized
                             0.        Bike paths
                             p-        Pedestrian circulation systems
                             q.        Inventory of public transit facilities and systems, including bus, cab, rail, air, passenger and freight
                                       facilities



                   4.        Other Public Facilities and Physical Services

                             a.        Public water systems: type, location, capacity, condition, use, planned improvements
                             b.        Public sanitary sewer systems: type, location, capacity, condition, use, planned improvements
                             C.        Public storm sewer systems: type, location, capacity, condition, use, planned improvements
                             d.        Public administrative and maintenance buildings: type, use, location, capacity, condition, planned
                                       improvement, deficiencies
                             e.        Police
                             f.        Fire/EMS
                             9-        Outdoor parks and recreation
                             h.        Indoor recreation
                             i.        Libraries
                             i-        Schools
                             k.        School enrollment
                             1.        Health facilities
                             In.       Cemeteries
                             n.        Communications facilities
                             0.        Electric, oil, gas and related facilities










                         Community Character & Open Space

                         a.       Landscape (including land forms) and open space analysis
                         b.       Scenic vistas
                         C.       Entry points
                         d.       Community characteristics
                         e.       Historic structures
                         f.       Waterfront features and linked water resources
                         9.       Conservancy areas
                         h.       Special public and private open spaces
                         i.       Cultural facilities: museums, theaters, lighthouses, etc.







                                                                                                              HOAA COASTAL SFRVICES CTR LIBRARY



                                                                                                              3 6668 1-1-06 7