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GOALS AND OBJECTWES, FOR MANAGING GROWTH ON THE LEELANAU PENINSULA 3. D R A F T THE 4LEELANAU GENERAL PLAN Policy Guidelines for Managing Growth on the Leelanau Peninsula Working Paper Number 6 September 5,1991 Ibis Document is Printed on Recycled PVw DRAFT TABLE OF CONTENTS GOALS & OBJECTIVES OF THE LEELANAU GENERAL PLAN ...........................................1 Growth Management .......................................................................................................1 Land Use Planning ..........................................................................................................1 Community Character .....................................................................................................2 Special Environments And Open Spaces .......................................................................2 Environmental Quality .....................................................................................................3 Agriculture, Farming, Mining & Fisheries ........................................................................3 Commercial & Industrial ..................................................................................................3 Jobs & Economic Development ......................................................................................4 Housing ...........................................................................................................................4 Public Facilities & Services .............................................................................................4 Intergovernmental Coordination ......................................................................................5 1:%word\6ec\19edoc.doc\ww Workng Paper #6 - Goals & Objectfves Page i DRAFT LEELANAU COUNTY BOARD OF COMMISSIONERS John D. Stanek Philip E. Deering Chairman Vice Chairman Louis A. Girard Donald W. Mitchell Gerald N. Henshaw Joseph F. Brzezinski Rochelle Steimel LEELANAU COUNTY PLANNING COMMISSION William Mateer Dana MacLellan Chairman Vice Chairperson Merle Bredehoeft Margot Power Jack Burton Lois Cole Louis A. Girard Richard fRick) N. Stein Steve Kalchik Daniel Heinz Lawrence Verdier LEELANAU GENERAL PLAN STEERING COMMITTEE John D. Stanek Chairman Gary Bardenhagen Paul Gardner Margot Power Joann Beare John Harding Robert Price Sargent Begeman Max Hart E. Larry Price Barbara Collins Carl Headland Ed Reinsch Stan Couchnerkavich Dan Hubbell George Rosinski Shirley Cucchi Richard Hufford Richard Sander Catherine J. Cunningham Kalin Johnson Charlene Schlueter Walter Daniels Linda Johnson Ruth Shaffran Judy Egeler Colleen Kalchik Thomas Shimek Randy Emmeot Edward Kazenko Dennis Stavros Kathy Feys James Modrall Harry Stryker Phil Deering John Naymick Mitsume Takyama Mary Frank Mary Newman Midge Werner Gary Fredrickson Glen Noonan Ben Whitfield James Frey Richard Pleva Ruth Wilbur Working Paper #6 - Goals & Objectives Page DRAFT LEELANAU GENERAL PLAN PROJECT STAFF Timothy J. Dolehanty Duane C. Beard County Planning Director County Coordinator Trudy J. Galla Pat Stratton Assistant Planner County Board Secretary Joyce Pleva Planning Department 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 A. Eidelson, AICP, Sr. Planner Woridng Paper #6 - Goals & Objectives Page m DRAFT PREFACE This working paper is the sixth in a series providing background information and support for the preparation of the Leelanau General Plan: Policy Guidelines for Managing Growth on the Leelanau Peninsula. The first four working papers were generated to document the activities of the Citizen Advisory Committee (CAC). The CAC was a special advisory commit- tee to the Planning Commission and Board of Commissioners. It consisted of more than 30 citizen representatives of geographic and functional interests of the county. The principal charge of the CAC was identification of the "best choice growth management approach" for Leelanau County. They concluded that, while a new plan was needed, it should not be simply another "County Comprehensive Plan" prepared by the County Planning Commission. In- stead, what is needed is a growth management plan for the Peninsula that involved the direct input and involvement of all the local units of government in the County. This led to the initia- tion of the Leelanau General Plan. The goals and objectives in this working paper will ultimately serve as the basic policy foundation for the Leelanau General Plan. However, it is intended to serve as a discussion document until any or all of its elements are adopted in whole or in part. As a result, if you have suggestions for additions, subtractions or refinements, please direct them to the Lee- lanau County Planning Department. Working paper #5 describes the "Trend Future" for the County if existing trends continue. Working papers after this one will address a wide range of technical issues in more detail. 1Aword\69cMeedoc.dor\ww Wor;dng Paper #6 - Goals & Objectives Page iv DRAF7 GOALS & OBJECTIVES of the LEELANAU GENERAL PLAN Goals and objectives are the foundation of a plan. Objective: Ensure that existing and future devel- Goals are broad-based statements of intent and es- opment is sustainable in regard to the Peninsula's nat- tablish the focus of the plan. Objectives are the stated ural carrying capacity and the amount of development means by which goals can be achieved. The goals and anticipated in the Leelanau General Plan. objectives presented in this working paper were pre- pared through an extensive process of leadership and Objective: Guide growth in compact areas around public opinion surveys, meetings with local officials existing activity centers where public facilities and and citizens, and town meetings. services have adequate capacity to accommodate growth and where provision of public facilities is cost- From December of 1989 through February of effective. 1990, 12 growth management forums were held in the Peninsula aimed at identifying the attitudes of numer- Objective: Limit development in areas not served ous interest groups regarding growth in the Peninsula by public sewer and water facilities, where public including the locations of growth and its impacts. The roads are inadequate to handle traffic associated with results of these forums are presented in Working Pa- growth, and where provision of public facilities is not per #1. Approximately 322 local citizens and 118 local cost-effective. officials responded to a scientific random sample sur- vey which asked questions pertaining to key planning Objective: Review County and local community and growth management issues in Leelanau County. plans proposing the expansion and improvement of The results of these surveys are presented in Working existing public services and facilities for their impacts Papers #2 and #3. During 1990 and 1991, "futuring on peninsula-wide growth patterns and for consistency sessions" were held, in a "town meeting" format, with the goals, objectives, and policies of this plan. where participants were asked to imagine and de- scribe what they would like the Leelanau Peninsula to Objective: Enact capital improvement plans which be like in the year 2000. Participants were separated specify the timing, cost, and means of financing the into groups and asked to prepare of list of their provision and/or expansion of public facilities in each "prouds" and "sorries" in the County, and to describe community on the Peninsula. their vision for the future. The results of the mail sur- vey, futuring sessions, and of Working Paper #4, a Objective: Recognize the seasonal nature of the document embodying the final recommendations of local tourism industry and develop growth the Citizen Advisory Committee on the character of management strategies which respond to both year- the Plan, were reviewed and used as the basis for the round and seasonal activity patterns. preparation of draft goals and objectives. Refinements were made in a workshop setting by the Steering Committee before presentation in this working paper. LAND USE PLANNING Goal: Promote the balanced, efficient, and eco- GROWTH MANAGEMENT nomical use of land to meet the environmental needs of people and nature in a manner which minimizes Goal: Guide future growth and development in a land use conflicts within and across municipal borders manner which: is consistent with the natural character- while also preserving the unique character of each istics of the land and the planned provision or expan- community, and the scenic and rural character of the sion of necessary public facilities and services; strives Peninsula as a whole. to preserve scenic beauty, fosters the wise use of nat- ural resources; protects environmentally sensitive ar- Objective: The County Planning Commission eas; and enhances the special character of the Penin- shall solicit input from all local governmental units on sula. the most effective mechanism to continuously ensure compatible land use planning and zoning across Working Paper #6 - Goals & Objectives Page 1 DRAFT municipal borders and minimize future land use serve as the basis for programs to protect and conflicts within the county and with communities in enhance that character. adjacent counties by coordinating local planning and zoning programs. Objective: Identify and preserve significant historic, archeological, and scenic features of the Objective: Discourage sprawl and scattered de- Peninsula. velopment through the planned expansion of roads and public utilities and through zoning regulations Objective: Preserve the rural character of air, which limit intensive development to areas where ade- water, and land based transportation corridors and quate public services are available. scenic vistas within view of these corridors. Objective: Develop a county-wide program for Objective: Preserve scenic vistas as viewed from identifying and monitoring the impacts of the local both the shoreline (views to ridges, etc.) and inland tourism industry and develop planning and zoning (views from the ridges, etc.). tools to minimize any negative impacts of these activi- ties. Objective: Preserve the natural character of shoreline areas. Objective: Encourage approaches to land use and site design which take into account natural Objective: Encourage land uses and features of the property, such as soils, topography, densities/intensities of development which are hydrology, and natural vegetation, and which use the consistent with and complement the character and land most effectively and efficiently to maximize open image of the Peninsula and which are consistent with space, and preserve scenic vistas. local planning and zoning programs. Objective: Prevent fragmentation of open space Objective: Establish and encourage enactment of and farmland through coordinated land use plans and uniform sign control standards to protect the scenic related regulations. and rural character of the Peninsula. Objective: Establish and encourage the Objective: Identify and designate wildlife corridors enactment of uniform standards for residential, (especially where animal "movement" is concerned), commercial, and industrial development which require and establish means for preservation. the incorporation of site design measures to protect environmentally sensitive areas, and preserve important open spaces. SPECIAL ENVIRONMENTS AND OPEN SPACES Objective: Establish a periodic monitoring and re- view process for the Leelanau General Plan which in- Goal: Protect special environments and open corporates continuous and meaningful public partici- spaces such as sand dunes, wetlands, woodlands, pation. farmland, bays, lakes, streams, and critical wildlife habitat, from the harmful effects of incompatible de- Objective: Develop and implement a program of velopment activity by limiting the type and intensity of information distribution on county-wide planning initia- land development in those areas. tives to citizens, developers, real estate agents, new home owners, and any interested parties. Objective: Define and identify sensitive environ- mental areas and areas to be preserved as open space such as woodlands, wetlands, sand dunes, COMMUNITY CHARACTER other environmentally sensitive areas, orchard lands, farmland and land not suitable for intensive develop- Goal: Retain and enhance the scenic and rural ment because of natural limitations for the erection of character of the Peninsula. structures or septic systems (such as hydric soils, flood plains, steep slope or areas at high risk of shore- Objective: Document and establish the existing line erosion). natural character of the Peninsula as well as the existing character, of its villages and townships, to Working Paper #6 - Goals & Objectives Page 2 DRAFT Objective: Ensure that new development does not Objective: Encourage the development of an air degrade the natural or visual character of environmen- surveillance monitoring system to assess air quality on tally sensitive areas. a county-wide basis and identify critical trends. Objective: Encourage clustering of new residen- Objective: Educate the public regarding ground- tial development within a parcel so as to maximize the water aquifer sensitivity. Such a program will promote amount of open space preserved. self-enforcement" of groundwater protection stan- dards. Objective: Prevent the establishment of land uses and new developments designed so as to block signif- Objective: Educate the public concerning pollu- icant views of public resources from public lands and tants and the potential damage from improper dis- rights-of-way. posal. Objective: Establish and encourage the enact- ment of uniform regulations for land development in AGRICULTURE, FARMING, special environments which permit development in a MINING & FISHERIES manner consistent with protection objectives and which complement state and federal regulations for Goal: Ensure that the sustained economic vitality special environments. of natural resource based industries is preserved Objective: Require new development in and adja- through appropriate management practices. cent to special environments which meets local, Objective: Identify prime locations for resource county, state and federal permit requirements to mfti- based industries according to the projected quality and gate any negative impacts on such environments. quantity of the resource product. Objective: Support the acquisition of special envi- Objective: Educate and assist farmers and forest ronments of significant public value by public agencies land owners regarding contemporary resource man- or nonprofit conservancy organizations for the pur- agement techniques. poses of permanent preservation. Objective: Educate the public about the value of and alternative approaches to preserving agricultural ENVIRONMENTAL OUALITY lands. Goal: Ensure that land uses and activities on the Objective: Complete watershed management Peninsula promote and preserve clean air and water. programs for all watersheds in the Peninsula and im- plement recommendations in support of fishery popu- Objective: Protect groundwater, lakes and lations. streams from the harmful effects of intensive and in- compatible development through the use of aquifer Objective: Encourage the establishment of private and watershed management techniques which seek to local facilities through which local resource based reduce risks of and quantities of potential pollution and products can be sold. sedimentation. Objective: Encourage compatible development Objective: Identify vulnerable aquifers and other and the adoption of land use techniques that preserve sensitive areas in watersheds of the Peninsula. natural resource industries. Objective: Establish and encourage the enact- Objective: Explore the development of a County- ment of review processes for all development in loca- wide program to purchase development rights and/or tions identified as sensitive aquifer and/or watershed the transfer of development rights as a way to protect areas and limit land division, development densities resource based lands and industries. and land uses in and around them. Objective: Require as a condition of local or county development approval that all state and federal air pollution regulations be met. Working Paper #6 - Goals & Objectives Page 3 DRAFT COMMERCIAL & INDUSTRIAL overall Peninsula-wide growth management goals and objectives. Goal: Provide practical and functional locations, patterns, and regulations for the expansion of com- Objective: Explore alternative economic devel- mercial and industrial activities which serve the current opment programs which provide non-tourism based and future needs of residents and tourists, are consis- economic development strategies. tent with the unique character of the Peninsula, and are adequately served by public services. Objective: Ensure that the natural rural character of the Peninsula is protected in new resort, commer- Objective: Encourage new commercial and indus- cial and industrial developments through uniform envi- trial development to locate adjacent to existing com- ronmentally sensitive, local she design zoning stan- mercial and industrial land uses, if so provided in local dards. plans and zoning regulations. Objective: Take advantage of programs which Objective: Ensure that elements of preservation improve the skills and educational levels of low in- of the Peninsula's rural charac'ter are incorporated into come, unemployed individuals to enable them to ob- new commercial and industrial developments through tain permanent employment. requirements established in uniform local she design zoning standards. HOUSING Objective: Emphasize the improvement and re- development of existing deteriorating tourist-based Goal: Provide for a broad range of housing oppor- commercial facilities, including resort developments, tunities which respond to the varying economic, family, and deemphasize new tourist-based commercial de- and lifestyle needs of area residents and tourists in a velopments. manner which reflects the current overall residential development densities. Objective: Encourage more diversified and locally generated commercial and industrial development Objective: Develop measures to assure afford- which will increase the range of employment oppor- able housing throughout the Peninsula and close to tunities. places of employment, through special local zoning or incentive programs. JOBS & ECONOMIC DEVELOPMENT Objective: Develop and implement measures to meet the unique housing needs of senior-citizens as Goal: Provide an environment which encourages alternatives to institutional care. the creation of new job and economic development opportunities that fulfill local needs while maintaining Objective: Ensure future residential development the current rural and asmall lown* character of the above one unit/acre is located where adequate public Peninsula. services (including sewage disposal, potable water and adequate public access) are available. Objective: Encourage the expansion of job creat- ing land uses which improve the quality and quantity of Objective: Provide opportunities for rural residen- local employment opportunities, provided they are lo- tial living which do not threaten the continuance of cated so as to minimize their impact upon adjacent farming on economically viable agricultural land or un- land uses and do not promote sprawl. dermine the integrity of efforts to protect environmen- tally sensitive areas. Objective: Encourage job opportunities offering year-round employment. Objective: Promote more clustered housing op- tions as alternatives to individual minimum-lot size Objective: Focus economic initiatives in a manner zoning- to preserve and enhance existing activity centers. Objective: Retain and enhance the local tourism industry to the extent that is does not conflict With Woddng Paper #6 - Goals & Objectives Page 4 DRAFT PUBLIC FACILITIES & SERVICES Objective: Develop a county-wide solid waste management program which includes facilities for re- Goal: Provide a range of public facilities and ser- cycling wastes, composting, household hazardous vices consistent with the rural character of the County, waste collection, and public education programs. which meets the needs of local communities, which supports the overall growth management goals and Objective: Coordinate allowable development objectives of this Plan, and which supports the public densities in local zoning programs with natural limita- health, safety, and welfare of residents and visitors. tions to safe on-site sewage disposal. Objective: Establish and encourage the enact- Objective: Extend public sewer and water facili- ment of uniform level of service standards that require ties in a planned and phased manner, or where elimi- adequate public facilities and services be in place con- nation of health risks requires, and where done in sup- current with new development. port of the growth management goals and objectives of this Plan. Objective: Maintain the quality and capacity of the current road network and the.existing level of service Objective: Maintain or improve the current quality provided. of police, fire protection and health care services. Objective: Identify priority roadway segments for Objective: Increase recreational opportunities maintenance and improvement to remove traffic haz- throughout the Peninsula, including additional facilities ards, improve public safety and traffic flow. Make all for children, fishing access, and an expanded linked such improvements in coordination with growth man- trail system, through the development of a compre- agement initiatives and planned future land use pat- hensive long-range County recreation plan. terns, ever mindful of unnecessarily creating an oppor- tunity for leapfrog or a sprawl development pattern. Objective: Support the maintenance and im- provement of quality educational opportunities avail- Objectives: Include and implement all roadway able to area residents. improvements according to mufti-year capital im- provement plans coordinated between county, state and local governments. INTERGOVERNMENTAL COORDINATION Objectives: Establish and adhere to a single, uniform design standard for public roads in the County Goal: Establish and maintain efficient, effective, and avoid fragmented roadway design approaches. and convenient processes for local, county and state governments to address multi-jurisdictional and growth Objective: Identify appropriate regulatory mea- management issues in a manner which recognizes the sures regarding she development and land division to autonomy and mutual interests of each and is consis- minimize the potential for future traffic congestion, tent with the goals and objectives of this Plan. safely hazards, and intrusion upon scenic views along principal roadways. Objective: Enhance the feasibility and effective- ness of providing necessary public facilities and ser- Objective: Ensure safe pedestrian and bicycle vices through cooperation and sharing of costs be- passage throughout the Peninsula. tween benefiting local governments. Objective: Maintain adequate regulations for on- Objective: The County Planning Commission will site sewage disposal systems and potable water to develop with the assistance of all local governments in assure efficient and safe on-she sewage disposal and the county, new procedures to address land use plan- potable water in light of anticipated growth. ning and development issues consistent with the Lee- lanau General Plan. Objective: Identify areas within the County which present natural limitations to septic systems including Objective: The County will provide citizens and floodplains, wetlands, poor soils, and excessive local officials with mapped and statistical data, coordi- grades. nate communications between local municipalities, government agencies, and the public and provide Working Paper #6 - Goals & Objectives Page 5 DRAFT technical assistance to local governments on planning, zoning, and growth management issues. Objective: Local capital improvement program- ming will be coordinated with adjoining jurisdictions and with the County. Objective: Develop and maintain a meaningful communication program whereby local governmental units, including townships, villages, school districts, the County Health Department, and the County Road Commission, regularly convene to discuss current land use and growth management issues, public facilities and services needs, and alternative strategies to ad- dress those issues and needs in a mutually beneficial manner. Similarly, the County will notify and interact with officials of adjacent counties on planning and/or development related activities which may affect their areas of jurisdiction. Objective: The County Planning Commission will continually monitor Peninsula growth trends and pat- terns to determine the relationships of such growth and development to adopted plans, programs, and re- sources of the County and local municipalities. Objective: The development and expansion of specialized social services throughout the Peninsula will be encouraged as needs become apparent (including child care, clinical counseling, medical ser- vices, education, and information dissemination). Objective: Inform and improve access by the dis- abled citizens of the Peninsula to the agencies and businesses that serve the disabled. Working, Paper #6 - Goals & Objectives Page 6 OAA COASTAL SERVICES CTR [ 111,111, 1111, @[ 1@ @@T 1111 llllll@ @11@ . 3 6668 14111903 4