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








                                                              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




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                                                       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








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                                                           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
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                                 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























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                                                 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.









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                                                    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

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            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


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                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.

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           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


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           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


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                                                               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.
























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