1. home and garden

CARPC AGENDA COVER SHEET
Executive Summary
Re:
November 12, 2009
Item 7
Consideration of Resolution CARPC No. 2009-13 amending the Dane County Land
Use and Transportation Plan and Dane County Water Quality Plan by revising the
Central Urban Service Area boundary and Environmental Corridors in the City of
Madison and Town of Verona
Decision Items:
1. Consideration of Resolution CARPC No. 2009-13
Synopsis
The proposed amendment will add 44.1 acres to the Central Urban Service Area south of Mid
Town Road and west of Woods Road. Located on the southwestern edge of the City of Madison,
31.6 acres of the amendment area are in the City of Madison and 12.5 acres are in the Town of
Verona. The amendment request proposes 22.5 acres of residential development with 135
housing units, accommodating approximately 357 persons including an estimated 61 schoolaged children. The development proposal also includes 15.4 acres of street right-of–way and
6.2 acres for stormwater management facilities, parks and open space. There are 2.9 acres of
existing residential development and 3.6 acres of existing right-of-way.
Background
The proposed amendment provides the full range of urban services and is within the twentyyear service area land demand for the Central Urban Service Area. There are no significant
natural resources in the amendment area that would require inclusion in environmental
corridors.
The City of Madison has proposed stormwater management performance standards that are
more stringent than those in NR 151 and the Dane County Chapter 14 to help mitigate the
adverse impacts of the proposed development. The amendment area is a small percentage
(<1%) of the Lower Badger Mill Creek Watershed and an even smaller percentage of the Badger
Mill Creek Watershed. However, the cumulative effects of increased peak flow rates and
volumes of stormwater runoff warrant more stringent standards on a consistent, watershedwide basis.
The peak flow rate control requirement in the City of Madison stormwater ordinance for this
watershed covers a larger design storm (100-yr 24-hr) than required by NR 151 or Dane
County Chapter 14. Increased peak flow rates from smaller storms can also result in erosive
velocities and flashier stream flows. Therefore, CARPC staff recommends that the 1-yr 24-hr
storm also be included in the range of design storms used for peak flow rate control. Some
communities, such as the Cities of Middleton and Verona, have adopted more protective
maximum predevelopment runoff curve numbers than those required by NR 151 or Dane
County Chapter 14. The City of Madison should also consider adopting more protective
maximum predevelopment runoff curve numbers, at least for sensitive watersheds.
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The City of Madison proposes that developers in the amendment area be required to limit postdevelopment stormwater discharge volumes from the 1, 2, and 10-year storm events to no more
than the pre-development volumes for these same events only if the development will discharge
stormwater onto the adjacent farm field and not if the stormwater will discharge directly into
Lower Badger Mill Creek via a stormsewer. It is difficult to reconcile the City’s inconsistency
between acknowledging the need to mitigate stormwater volume impacts on an adjacent farm,
but not on the water resource. Therefore staff recommends the performance standard of
maintaining pre-development runoff volumes to protect the natural resources that are
downstream of the proposed amendment areas. Rainfall series data provide more accurate
modeling of actual rainfall intensity and antecedent moisture conditions than synthetic design
storms, therefore CARPC staff recommend that the standard 1-year and 5-year annual rainfall
series be used to demonstrate compliance with the volume control standard. If necessary,
retrofit practices could be implemented in other areas of the subwatershed to meet a volume
control and groundwater recharge standard on a subwatershed basis.
It is important to note that the objective of protecting, improving, and restoring water quality
and fisheries can only be realized through stringent standards that are applied to the entire
watershed. One such protective standard is maintaining predevelopment runoff volumes for all
storm events to maintain the hydrology of these streams. Staff has previously recommended
that a standard of no increase in runoff volume be adopted for the Badger Mill Creek subwatershed and that a watershed level intergovernmental agreement be facilitated by the CARPC
so that all new development in the watershed is required to uphold this standard. This may be
the only practicable approach that would prevent further degradation of these sensitive cold
fisheries. The Commission has referred this issue to its Environmental Resources Technical
Advisory Committee for discussion and recommendation.
Staff Recommendation
If the Commission decides to take action on this amendment, staff recommends the
following conditions based on the proposed land uses and services and on the City of
Madison pursuing the following:
Submit a detailed stormwater management plan for CARPC and DCL&WCD staff review
and approval prior to any land disturbing activities in the amendment area. The stormwater
management plan should include the following:
a. Install stormwater practices prior to other land disturbing activities and protect
these practices from compaction and sedimentation during land disturbing activities
or restore them after land disturbing activities are completed
b. Provide at least 80% sediment control for the amendment area in accordance with
existing ordinances
c. Control peak rates of runoff for the 1, 2, 10, and 100-year 24-hour design storms to
“predevelopment” levels
d. Control post development runoff volumes to be equal to or less than predevelopment runoff volumes for the one-year average annual rainfall period and
five-year average rainfall period in addition to the 1, 2, and 10-year 24-hour design
storms
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e. Maintain WGNHS pre-development groundwater recharge rates (9 to 10 inches per
year) with no caps on the extent of infiltration areas
f.
Provide deep tilling to restore all areas compacted during construction
g. Control the thermal impacts of stormwater discharge to meet WDNR cold water
standards in accordance with existing ordinances
h. Stormwater practices should be publicly managed, or have a perpetual legal
maintenance agreement finalized with the City
Materials Presented with Item:
1.
2.
Staff Analysis dated November 6, 2009
Draft Resolution CARPC No. 2009-13
Contact for Further Information:
Kamran Mesbah, Deputy Director
266-9283
[email protected]
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11/6/09
Staff Analysis of Proposed Amendment to the Dane County
Land Use and Transportation Plan and Water Quality Plan, Revising the
Central Urban Service Area Boundary and Environmental Corridors in the Shady
Wood Neighborhood in the City of Madison and Town of Verona
1. Applicant: City of Madison
2. Description of Proposal
The proposed amendment will add 44.1 acres to the Central Urban Service Area south of
Mid Town Road and west of Woods Road. Located on the southwestern edge of the City of
Madison, 31.6 acres of the amendment area are in the City of Madison and 12.5 acres are
in the Town of Verona. The amendment request proposes 22.5 acres of residential
development with 135 housing units, accommodating approximately 357 persons including
an estimated 61 school-aged children. The development proposal also includes 15.4 acres
of street right-of–way and 6.2 acres for stormwater management facilities, parks and open
space. There are 2.9 acres of existing residential development and 3.6 acres of existing
right-of-way (see Table 1 and Maps 1, 2, and 3).
Table 1: Central Urban Service Area, Shady Wood
Neighborhood Requested by the City of Madison
Proposed
Land Use
Density (units/acre)
Proposal
Housing Mix 1
6.9
Residential Total
6.9
CUSA
6.6
Total
( ac.)
% of
Total
Housing
Units
22.5
51%
135
135
No. of
No. of
Persons Students
357
357
61
Existing
Develop.
Environ. DevelopCorridor*
able
2.9
22.5
51%
Park, Open Space, Drainage
6.2
14%
61
0.0
Street R-O-W
15.4
35%
3.6
TOTAL
44.1
100%
6.5
19.6
2.9
19.6
4.9
1.3
11.8
4.9
32.7
31.6 acres in City of Madison (72%) & 12.5 acres (28%) in Town of Verona
Source: City of Madison Planning Submittal and CARPC
The plan for the amendment area calls for residential development classified in the
Neighborhood Plan as Housing Mix 1. Housing Mix 1 is described as predominantly
detached single-family housing on individual lots, but limited areas could be developed with
duplexes, row houses, or townhomes. Individual developments are limited to less than 16
units per acre, and the average is less than 8 units per acre. The relatively higher density
types of Housing Mix 1 housing are planned to be adjacent to the 1.2 acre neighborhood
park proposed for the amendment area.
The specific placement of stormwater facilities in the area will depend on how the
development is carried out. If development of the three parcels is coordinated, stormwater
detention may be able to be consolidated into one facility adjacent to the park. However, the
applicant reports that only two of the three property owners in the area have expressed
interest in near-term development. Additional open space is planned to buffer residential
development from Mid Town Road and Woods Road, and to provide a pedestrian-bicycle
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connection between development in the amendment area and an existing east-west street
east of Woods Road.
The 44.1 acre amendment area is Development Phasing Area A, one of three development
phasing areas within the larger Shady Wood Neighborhood. The complete Shady Wood
Neighborhood Planning Area, generally bounded by Mid Town Road on the north, Woods
Road on the east, County Trunk Highway PD on the south and Shady Oak Lane on the
west, is approximately 640 acres. The City of Madison Common Council has adopted the
Development Phasing Area A portion of the Shady Wood Neighborhood Plan, but referred
action on the balance of the Neighborhood Plan. The draft recommendations for the
remaining phasing areas (B and C) call for large areas to be designated open space to
protect and preserve unique natural features and provide for the Ice Age National Scenic
Trail. Most of the balance of the Shady Wood neighborhood is recommended for residential
use, including a number of existing single family residences. The Council referred this
portion of the plan to allow additional time to consider the concerns expressed by some of
the Area B and Area C property owners, primarily about the location and size of the
recommended Ice Age Trail and Open Space Conservation Corridor and Area Park, located
south and west of, but not adjacent to, the amendment area. The Council directed City staff
to work with the property owners to try to address their concerns, and the Phasing Area B
and C portions of the Neighborhood Plan are to be brought before the Council in midJanuary. (see Map 4)
3. Existing Environment
Natural Resources. The proposed amendment area is located entirely within the Lower
Badger Mill Creek sub-watershed of the Badger Mill Creek watershed. Lower Badger Mill
Creek is an intermittent stream that drains west side neighborhoods in the cities of
Madison and Verona, as well as areas within the towns of Middleton and Verona (see Map
5).
Lower Badger Mill Creek
The Lower Badger Mill Creek watershed is approximately 7,167 acres. The amendment area
is less than 1 percent of the watershed. The stream channel is approximately 6 miles long,
from its mouth at Badger Mill Creek, south of the City of Verona, upstream to Valley View
Road. Lower Badger Mill Creek is classified as an intermittent stream, meaning it flows only
after rainfall or snowmelt, and as a result it is dry most of the year. Therefore, water quality
and biotic index data are not collected for Lower Badger Mill Creek because of these flow
conditions.
The Lower Badger Mill Creek subwatershed is designated as a thermally sensitive area
since it is a tributary to Badger Mill Creek, which supports brown trout populations.
Badger Mill Creek is designated as a Class II trout stream by the WDNR for fish
management purposes, in accordance with NR 1.02(7). Badger Mill Creek is also classified
as a Variance Stream for Uses and Designated Standards [NR 104.05(2)], which allows the
WDNR to relax certain water quality standards for this stream to allow discharge of treated
municipal wastewater. These stream use standards are state water quality standards
established to guide water quality planning under NR 121.
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Central
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Turnwood Circle
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Hawks Landing
Golf Course
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Hidden Hill Drive
Shady Point Drive
Town of
Middleton
Tree
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Mid Town Road
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Shadow Wood Drive
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City of
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Central
USA
Map 1
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
s t o ne Lane
Ashworth Drive
Woods Road
Town of
Verona
ilver
Service Area to be added (44.1 acres)
Proposed Environmental Corridor (4.9 acres)
Existing Environmental Corridor
Incorporated Area
Existing Urban Service Area Boundary
Proposed Urban Service Area Boundary
.
28 October 2009
0
600
Feet
Prepared by staff
of the CARPC.
ive
Dr
Hidden Hill Drive
Turnwood Circle
K in
Mid Town Road
v
ir c le
g s w oo d C
Red Ta
il D
Shadow Wood Drive
ri
e
Shady Poin t Drive
an
Red
D
g e rs Way
re
Silverstone Lane
Woods Road
Ashworth Drive
Map 2 (Aerial 2008)
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
Existing Service Area Boundary
Proposed Service Area Boundary
Environmental Corridor to be Added
Incorporated Area
0
.
5 Nov. 2009
600
Feet
Prepared by staff
of the CARPC.
ive
Dr
Hidden Hill Drive
Shady Poin t Drive
an
Red
Turnwood Circle
ri
e
K in
ir c le
g s w oo d C
Red Ta
il D
Shadow Wood Drive
v
Mid Town Road
D
g e rs Way
re
Silverstone Lane
Ashworth Drive
af
tP
la
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Fu
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tP
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Woods Road
Dr
Map 3 Planned Land Use
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
Proposed Amendment Area
Extractive
Single Family
Incorporated Area
Industrial
Transportation
Agriculture
Institutional or Governmental
Two Family
Cemetery
Multi-Family
Water
Commercial Forest
Open Land
Woodland
Commercial Sales or Services
Outdoor Recreation
Communications or Utilities
Right of Way
0
.
6 Nov. 2009
600
Feet
Prepared by staff
of the CARPC.
CTH PD
Meadow Rd.
Shad
y
Oak Hill Ct.
Rolling Meadow Rd.
Nor-Del Hill Rd.
Mid-Town Rd.
Oak
Ln .
Shadow Wood Dr.
Woods Rd.
Nine Mound Rd.
Hidden Hill Dr.
Shady Point Dr.
Country
View Rd.
Mound View Rd.
F
A
DR
T
Woodland
500
1,000
Feet
City of Madison Planning Division
0
View Opportunity from Terminal Moraine
Richardson's Cave
Lower Badger Mill Creek
Conceptual Stormwater Detention Location
Undrained Kettle or Depression
Existing Dwelling Unit
Conceptual Trail Access Connection
Conceptual Ice Age Trail
Existing Ice Age Trail
Street Right-of-Way
Future Planning Area
Stormwater Management and
Other Minor Open Space
Potential Conservation Development
Open Space Conservation Area
Park
Existing Housing Mix 1
Higher Densities within Housing Mix 1
Housing Mix 1
Recommended Land Use
Planning Area
Shady Wood
Neighborhood Development Plan
March 2009
Map 4:
Land Use and Street Plan
Lake Mendota
Village of Shorewood Hills
Town of Middleton
City of Madison
Town of Madison
Town of Springdale
City of Fitchburg
City of Verona
Town of Verona
Map 5 Badger Mill Creek Subwatersheds
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town of Verona
Existing Urban Service Area
4 Nov. 2009
SubWatershed Name
Service Area to be Added
Badger Mill Creek
Natural Area (Floodplain or Wetland)
Lower Badger Mill Creek
Morse Pond
0
5,000
Feet
Prepared by staff
of the CARPC.
Threatened and Endangered Resources
The WDNR Bureau of Endangered Resources maintains a map representing the known
occurrences of rare species and natural communities that have been recorded in the
Wisconsin Natural Heritage Inventory (NHI). The map does not indicate the known presence
of rare aquatic or terrestrial species within the section in which the amendment area is
located.
The City of Madison hired a certified arborist to conduct a tree survey of the woods within
the amendment area. The arborist identified the tree species present as Bell’s Honeysuckle,
Box Elder, and Buckthorn. All three of these species are classified as invasive by the
WDNR.
Soils and Geology
The amendment area is located in the West Johnstown - Milton Moraines. The Land Type
Associations of Wisconsin classifies the surficial geology of this area as a rolling hummocky
moraine and outwash plain complex with scattered bedrock knolls. Surface elevations in
the amendment area range from around 1056 feet to 1120 feet (see Map 6).
The larger Shady Wood Neighborhood planning area contains some unique karst features.
Karst topography is shaped by the dissolution of layer(s) of soluble bedrock, usually
carbonate rock such as limestone or dolomite. Karst regions display distinctive surface
features including sinkholes and caves. Approximately ¼ mile south of Mid Town Road, on
the west side of Lower Badger Mill Creek, is a large karst feature know as Richardson’s
Cave. Karst features often provide a direct conduit to groundwater, therefore the potential
for the contamination of groundwater from polluted stormwater runoff is a concern in these
areas. NR 151 and Dane County Chapter 14 prohibit the infiltration of stormwater in areas
within 1,000 feet upgradient or within 100 feet downgradient of karst features. The western
edge of the amendment area is over 2,400 feet from Richardson’s Cave, well outside of the
area where infiltration is prohibited. Due to subterranean drainage, there is often limited
surface water and an absence of well-defined stream channels in areas with karst
topography. This occurs in sections of Lower Badger Mill Creek.
According to the Natural Resource Conservation Service (NRCS) Soil Survey of Dane
County, the majority of soils in the amendment area are in the Dodge-St. Charles-McHenry
association. These soils are well drained and moderately well drained, deep silt loams that
are underlain by sandy loam glacial till. Table 2 shows detailed classification for soils in the
amendment area. Table 3 shows important soil characteristics for the amendment area
(also see Maps 7 and 8).
No areas of hydric soils are located within the amendment area. The Troxel silt loam soils
have hydric inclusions. These soils as well as the St. Charles silt loam soils can have a
seasonal (April to June) zone of water saturation within 4.5 to 5 feet of the ground surface.
These soils can have limited suitability for buildings with basements due to this seasonal
high water table. Some of the areas with seasonally saturated soils have been placed within
the proposed environmental corridors and some are planned for residential development.
Depth to groundwater is over 25 feet in the rest of the amendment area.
According to Wisconsin Geological and Natural History Survey mapping, the bedrock in the
southwestern two-thirds of the amendment area is the Prairie du Chien Group, which is
8
dolomite with some sandstone and shale. The bedrock in the northeastern third of the
amendment area is the Sinnipee Group, which is dolomite with some limestone and shale.
Depth to bedrock is 10 to 50 feet in the amendment area.
Map 9 shows areas with seasonal high water table within 5 feet of the land surface, based
on NRCS soil survey data. NR 151 and Dane County Ordinance Chapter 14 limit infiltration
to roof runoff only in areas with these conditions.
Table 2
Soils Classification
Soil
% of Area
General Characteristics
Dodge Silt Loam;
DnB, DnC2
29.5
Deep, well drained, gently sloping and sloping soils on glaciated uplands. Soils have high
fertility, moderate permeability, and a moderate to severe hazard of erosion. Poses slight
limitations for development due to low bearing capacity.
St. Charles Silt Loam;
ScB
26.6
Deep, well drained and moderately well drained, nearly level to moderately steep soils on
glaciated uplands. Soils have high fertility, moderate permeability, and a moderate hazard of
erosion. Poses moderate limitations for development due to low bearing capacity.
Kidder Silt Loam;
KdC2
25.3
Deep, well drained, gently sloping to very steep soils on glaciated uplands. Soils have medium
fertility, moderate permeability, and a severe hazard of erosion. Poses moderate limitations for
development due to slopes.
Troxel Silt Loam;
TrB
10.4
Deep, well drained and moderately well drained, gently sloping soils in draws, on fans, and in
drainageways. Soils have high fertility, moderate permeability, a moderate hazard of erosion,
but are subject to flooding. Poses severe limitations for development due to low bearing
capacity and frequent flooding.
McHenry Silt Loam;
MdD2
8.2
Deep, well drained, gently sloping to moderately steep soils on glacial uplands. Soils have
medium fertility, moderate permeability, and a very severe hazard of erosion. Poses severe
limitations for development due to steep slopes.
Source: Dane County Soil Survey
9
Table 3
Soils Characteristics
Soil Map Symbols
(see Map 7)
Characteristic
% of Area
Prime Agricultural Soils
DnB, ScB, TrB
Hydric Soils
(Indicates Potential / Restorable Wetlands)
None
Soils with Seasonal High Water Table
ScB, TrB
Soils Associated with Steep Slopes
MdD2
8.2
Soils Associated with Shallow Bedrock
None
0
Limitations for Buildings with Basements
MdD2, ScB, TrB
45.2
Best Potential for Infiltration (0.5” / hr)
KdC2
25.3
Source: Dane County Soil Survey
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47.3
0
37.0
ive
Dr
110
0
Hidden Hill Drive
0
110
Turnwood Circle
K in
Mid Town Road
v
ir c le
g s w oo d C
Red Ta
il D
Shadow Wood Drive
ri
e
Shady Poin t Drive
an
Red
D
g e rs Way
re
Silverstone Lane
Ashworth Drive
1100
1100
0
0
11
Woods Road
0
11
1100
Map 6 Elevation
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
100 Foot Interval
Proposed Service Area Boundary
20 Foot Interval
Existing Service Area Boundary
4 Foot Inverval
Incorporated Area
0
0
.
5 Nov. 2009
600
Feet
Prepared by staff
of the CARPC.
Driv
e
ed
ops
an D ri
ve
Tree
t
Hidden Hill Drive
Turnwood Circle
r iv
e
Shady Point Drive
R
il
D
Ki
le
R ed
Ta
Shadow Wood Drive
n g s w o o d Ci r c
Mid Town Road
ScB
DnC2
ScB
DnB
D
g
re
e rs Way
Silverstone Lane
KdC2
ScB
Ashworth Drive
TrB
ScB
ScB
DnC2
MdD2
ScB
MdD2
Woods Road
KdC2
Map 7 Soil Type
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
Existing Urban Service Area
River/Stream
City of Madison Boundary
Lakes or Open Water
0
.
5 Nov. 2009
600
Feet
Prepared by staff
of the CARPC.
ive
Dr
Hidden Hill Drive
Turnwood Circle
K in
Mid Town Road
v
ir c le
g s w oo d C
Red Ta
il D
Shadow Wood Drive
ri
e
Shady Poin t Drive
an
Red
D
g e rs Way
re
Silverstone Lane
Woods Road
Ashworth Drive
Map 8 Soil Limitations
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town
of Verona
Existing Service Area Boundary
Proposed Service Area Boundary
0
.
5 Nov. 2009
600
Incorporated Area
Prime Farmland (20.7 acres)
Severe Limitations to Development (3.6 acres)
Feet
Prepared by staff
of the CARPC.
Map 9 Shallow Bedrock / Seasonal High Water Table Areas
to
1 2
to
1 2
to
2 3
to
3 4
to
5
0
5
4.
5
2
2.
5
3.
5
3.
75
Min. Depth to Water Table (ft) Depth to Bedrock (ft)
0
Amendment to the
Central Urban Service
Area and Environmental
Corridors in the City of
Madison and the Town of Verona
4 Nov. 2009
0
600
Feet
Prepared by staff
of the CARPC.
Groundwater Recharge
In 2009, the Wisconsin Geological and Natural History Survey published a report
estimating the existing groundwater recharge rates in Dane County based on the soil water
balance method. The study estimates the existing groundwater recharge rate in the
amendment area to be 9 to 10 inches per year.
Archaeology
The amendment application includes a letter from the Wisconsin State Historical Society
reporting that the amendment area was included in an earlier survey for cultural material
and no archaeological sites were identified. (See attached letter)
Land Use. The proposed amendment area is primarily in agricultural use or vacant. There
are two farm residences and outbuildings on the properties.
Land uses adjacent to the proposed amendment are as follows:
North:
South:
East:
West:
Residential (City of Madison)
Rural residential, woodland (Town of Verona)
Residential, University Ridge Golf Course (City of Madison)
Agriculture (Town of Madison)
Existing Transportation System. The major roadways serving the proposed amendment
area are Mid-Town, County Trunk Highway (CTH) PD, and CTH M. Mid-Town Road is a
two-lane, east-west minor arterial. CTH PD is a two-lane, east-west principal arterial. CTH
M is a two-lane, north-south principal arterial. Woods Road, which borders the amendment
area to the east, is a local road, but is planned as a future collector.
There is currently no bus service to the amendment area. Private taxicab service is
available from three different operators. The Madison Area Transportation Planning Board’s
Rideshare Etc. Program provides ride-matching services for individuals interested in car- or
vanpooling. Dane County contracts with a private provider for limited group ride service for
the elderly and persons with disabilities to nutrition sites, senior center activities, adult day
care, and shopping. The Retired Senior Volunteer Driver Escort Program (RSVP) uses
volunteer drivers to provide individual rides for the elderly, primarily to medical
appointments.
Mid-Town Road has paved shoulders to accommodate bicyclists and is suitable for
bicycling. CTH PD and CTH M have paved shoulders, but are still rated as least suitable for
bicycling due to traffic volumes and speeds. Mid-Town has a sidewalk on the developed
north side of the roadway and portions of the south side east of Woods Road. CTH PD, CTH
M, and Woods Road do not have sidewalks.
4. Consistency or Conflict With Adopted Plans and Policies
The proposed amendment is consistent with the future land use shown in the City of
Madison Comprehensive Plan, and with the plan for Development Phasing Area A, one of
three development phasing areas of the draft Shady Wood Neighborhood Development Plan.
The Development Phasing Area A portion of the plan, covering the northeast corner of the
15
neighborhood, was adopted by the City of Madison Common Council on July 21, 2009.
While adopting the recommendations for Phasing Area A, the Council referred action on the
balance of the Neighborhood Plan to allow more time to consider the concerns expressed by
some of the Area B and Area C property owners, primarily about the location and size of the
recommended Ice Age Trail and Open Space Conservation Corridor and Area Park. The
areas of concern are located south and west of, but not adjacent to, the amendment area.
The Council directed City staff to work with the property owners to try to address their
concerns, and the Phasing Area B and C portions of the Neighborhood Plan are to be
brought before the Council in mid-January. The City has included the draft
recommendations for Phasing Areas B and C with the USAA application for Area A to
provide context for review of the amendment application.
The amendment is also consistent with the City of Madison and City of Verona
Intergovernmental Cooperation Agreement, adopted in 1996, under which an ultimate
boundary between the two municipalities was established at County Trunk Highway PD,
the southern boundary of the Shady Wood Neighborhood planning area.
The proposed amendment has no conflict with the Dane County Park and Open Space Plan.
The Park and Open Space Plan identifies the Ice Age Trail Corridor, and a proposed off-road
bicycle-pedestrian trail through the corridor, crossing through the Shady Wood
Neighborhood, southwest of the amendment area.
The Shady Wood amendment proposal supports one CARPC goal and some CARPC
neighborhood development objectives, and conflicts with one CARPC goal.
The proposed residential density of 6.9 units per acre exceeds the existing CUSA residential
density of 6.6 units per acre, supporting the goal of promoting compact urban development.
The City of Madison proposes residential Housing Mix 1 for this amendment area and
throughout the Shady Wood Neighborhood. This housing mix falls in a low density category
for the City of Madison. The City provides the following reasons for planning only lower
density residential development for the Shady Wood Neighborhood:
x
The City does not recommend mixed –use development because it considers the
market potential for neighborhood-scale commercial to be limited at this edge
location generally characterized by relatively low densities. There are limited areas of
mixed-use development nearby, and the amendment is close to existing and
planned employment, service and retail locations in the surrounding area.
x
The City does not recommend higher-density housing types partly due to the
absence of supporting activity centers in the neighborhood, and the lack of transit
service in the foreseeable future.
x
The City proposes lower density housing types to be more compatible with the
existing rural/suburban residential development in the area, and with the
recommended Ice Age Trail Open Space Conservation Corridor in the neighborhood.
The amendment proposal supports CARPC objectives regarding neighborhood development
by being part of, and consistent with, a detailed neighborhood development plan that
recommends a walkable and bikeable neighborhood with an east-west pedestrian and
bicycle route and sidewalks within the amendment area.
16
The proposed amendment conflicts with the CARPC goal to protect agricultural lands
because approximately 47 percent (20.7 acres) of the amendment area is composed of
prime agricultural soils.
The recommendations included in the draft plan for the larger Shady Wood neighborhood
support the CARPC goals of protecting environmental resources and promoting a countywide system of open space corridors by identifying over 160 acres for the Ice Age Trail and
Open Space Conservation Corridor southwest of the amendment area.
The proposed amendment is adjacent to the existing urban service area to the east and
north, with access to urban services from these adjacent areas.
Need
The addition of 32.7 developable acres proposed in the current amendment is well within
the CARPC forecast of 2030 land demand for the CUSA. The January 2009 land demand
calculations for the CUSA forecasted a need for 2,624 additional developable acres by 2030.
Since that time, the CARPC has approved two additions to the CUSA: 312.4 developable
acres for the Pumpkin Hollow Neighborhood in the City of Madison, and 40 developable
acres for a school site in the Blackhawk area of the City of Madison. With both CUSA
amendments taken into account, the remaining 2030 land demand for the CUSA is 2,271.6
developable acres.
The Commission will need to adopt 2035 population forecasts early in 2010 in order to
maintain a minimum 20-year planning horizon required by NR 121. Extending the land
demand forecast to 2035 increases the unsatisfied land demand forecast for the CUSA to
4,628.6 developable acres.
Redevelopment and Infill
The City has provided documentation of support for infill and redevelopment activities,
particularly in the Downtown and Isthmus areas, increasing residential density. See Map
10 (Downtown Development) and Map 11 (New Dwelling Units)
17
Map 10
TWIN VALLEY RD
109.02
4
879
VALLEY VIEW RD
109.01
696
1323
BLACKHAWK RD
Zero Units Added
Greater than 500
100 - 500
Map 11
PIONEER RD
20 - 99
MCK EE RD
MIDTOWN RD
4.03
MIN ER AL
108
609
1029
1975
883
N
U
5.04
C
M
MC
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P OIN T
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107.02
PD
525
627
5.03 C.T.H.
PUTNAM
1808
30
RAYMOND RD
4.04
NE
1026
16
LI
1291
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1
6
4.02
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P OIN T
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LIMITS
CITY
1848
7
UNIVERSITY AVE
MIN ER AL
2946
162
CITY
1089
0
1910
5
3
RR
MONTICELLO
5.01
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9
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MADISON
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2.05
GREENWAY
U.S.H. 12
Less than 20
GAMMON RD
BALZER RD
CENSUS TRACT #
ITALICIZED
ALLEN BLVD
Additional Dwelling Units Permitted
NEW DWELLING UNITS 2000-2007
BOTTOM#
MIDVALE BLVD
HARPER
RD
TOTAL # OF DWELLING UNITS IN 2000 CENSUS
WHITNEY WAY
LAKE
TOP#
M
C.T
.H.
DIVISION ST
2000 CENSUS TRACTS
E LINE
SEC 36
IG
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W LINE
20
CV
1074
38
YAH A R A
15.02
26.02
US HIGHWAY 51
844
2
E
NE
LI
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1004
0
PORTAGE RD
105
VOGES RD
41
687
U.S .H. 12 & 18
833
2911
FEMRITE DR
SIG GEL KO W RD
114
BUCKEYE RD
COMMERCIAL
114
NELSON RD
114
114
BRANDT RD
THORSON RD
City of Madison Department of Planning & Community & Economic Development, Planning Division, March 2008
Based on Building Permits Issued
31
E RD 30
2560
46
RD
2007
1
GR OVE
30.01
S TAT
LIEN RD
BURKE RD
114
HOEPKER RD
MILWAUKEE ST
1576
586
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115
RR
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ALL IS
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39
26.01
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26
MESSERSCHM ID T
879
4
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112
RD
CITY OF MADISON NEW DWELLING UNITS: 2000 - 2007
N NA
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SPRECHER AVE
90
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I 90
S STOUGHTON RD
14
5. Proposed Urban Services
Public Water System. The City of Madison proposes to provide public water service to the
amendment area by the Madison Water Utility through the extension of water mains within
Pressure Zone 8 with water from Wells 26, 16 and 28. Pressure Zone 8 is pressurized by a
ground storage reservoir. Currently, water mains are located along Mid-Town Road and
Woods Road. As development occurs, larger water mains will be extended along the primary
roads, with smaller water distribution mains constructed along local streets developed
within the amendment area. The City determined that the mains within Pressure Zone 8
have the ability to provide adequate water pressure to elevations between about 970 and
1,090 feet U.S.G.S. The City estimates water usage for the estimated 135 housing units
within the amendment area is estimated to be 21,600 gallons per day (assuming 160
gallons per unit per day). The current capacity of the Water Utility’s system is 68 million
gallons per day, with an average demand of 32 million gallons per day. Water services are
capable of providing 2,000 gallons per minute for 2.5 hours for fire fighting purposes.
The average water use per residential customer in the City Madison between 2004 and
2008 varied from 161 to 184 gpd per household based on the utility’s annual reports to the
Wisconsin Public Service Commission. Thus, the projected water use for the development
may be slightly underestimated. However, the current capacity of the City’s public water
system is more than twice the average demand so the difference in the water use
projections for the proposed development is not significant.
Continued development on the far west side of Madison will increase the demand for water,
and eventually new municipal wells will be required to ensure a reliable supply. The
Madison Water Utility Master Plan includes a conceptual location for a future Well 32 near
South Point Road between Mineral Point Road and Valley View Road. If constructed, this
well would potentially serve the planning area. The Master Plan also identifies a conceptual
location for a future Well 37 in the vicinity of the amendment area, which would likely be
developed after Well 32. This future well location is also only conceptual, as the siting of a
new well requires a considerable amount of detailed analysis and review.
Wastewater.
Near-Term Sanitary Sewer Service
The City of Madison proposes to extend existing and planned nearby sanitary sewer
infrastructure to serve development in the amendment area. Currently a lift station is
located just north of the amendment area at the intersection of Hidden Hill Drive and
Shady Point Drive. Effluent from the lift station is pumped eastward along Mid-Town Road
where it eventually reaches gravity-flow interceptors. A larger, regional lift station will be
constructed adjacent to Mid-Town Road near the Lower Badger Mill Creek corridor in 2009
with operation anticipated in 2010.
The City of Madison anticipates that development in the amendment area will generate an
average of 20,925 gallons of wastewater per day (assuming 135 dwelling units at 155
gallons per day). A peaking factor of 4 was used in sizing the lift station, so it is assumed
that the amendment area will generate a peak flow of 83,700 gallons per day or 57.85
gallons per minute. After accounting for current flows and anticipated flows from the
amendment area, the new lift station will have 356 gallons per minute of residual capacity.
20
The wastewater generation estimates are reasonable based on the historical rates for this
pumping station service area (146 gpd per household in 2000).
The City has identified two ways that the sanitary sewer effluent from the amendment area
could be conveyed to the lift station adjacent to Mid-Town Road. One option is to construct
a lift station and force main from the lower elevations of the amendment area to pump the
effluent north to Mid-Town Road. The effluent could then be conveyed by gravity through
existing sewers or a gravity sanitary sewer could be constructed along Mid- Town Road to
connect to the gravity sewer draining to the planned regional lift station. An option utilizing
gravity sanitary sewer service would be possible by constructing a sanitary sewer main
across the adjacent farm property west of the amendment area between the lower
elevations of the amendment area and the planned lift station adjacent to Mid-Town Road.
A sewer main through the adjacent farm property could be located beneath the surface of
the agricultural fields to permit continued cultivation. To the extent possible, the sewer
would follow the alignment of planned future streets. To use this option, developers in the
amendment area would need to obtain an easement from the adjacent property owners to
accommodate the sanitary sewer main.
Long-Term Sanitary Sewer Service
The Madison Metropolitan Sewerage District’s planned Lower Badger Mill Creek Interceptor
will eventually serve the amendment area. This Interceptor will be extended northward from
the City of Verona along the Lower Badger Mill Creek corridor, and continue up the corridor
within the Shady Wood planning area. Local sewers will connect to the Lower Badger Mill
Creek Interceptor to serve new development areas. The timing of construction of the Lower
Badger Mill Creek Interceptor is dependent on the available capacity of the planned lift
station adjacent to Mid-Town Road. When the lift station nears its capacity, the Lower
Badger Mill Creek Interceptor will be constructed to relieve the lift station and provide
gravity sanitary sewer service for the Lower Badger Mill Creek watershed. The pace of
development in the area served by the lift station will determine when the Interceptor is
needed. Current estimates indicate that this may be around 2020.
MMSD
The Madison Metropolitan Sewerage District (MMSD) will provide wastewater treatment for
the amendment area. The MMSD Pumping Station 12 currently serves this area. The
MMSD Pumping Station 17 will serve this area when the Lower Badger Mill Creek
Interceptor is completed. The MMSD is planning capacity improvements for its collection
system. The Nine Springs Treatment Facility has a design capacity of 50 million gallons per
day (mgd) and received an average of 47.2 mgd in 2008, including infiltration. It is expected
to reach capacity by 2020 depending on growth rate assumptions. The MMSD has
completed a long-range plan that evaluated various options for expanded treatment
capacity to serve its current and future service area. For the 20-year planning period,
service to this area is expected to remain through current interceptor routes with expanded
capacity of the system as the need is foreseen.
Stormwater Management System. The City of Madison is proposing one primary and two
secondary stormwater detention facilities in the amendment area. The primary facility is
planned at the lowest elevations at the western edge of the amendment area. If the
development of two or all three parcels within the amendment area is coordinated, the City
may shift the locations of the secondary facilities and eliminate one or both of them. The
facilities will be designed to maximize infiltration to the extent possible. Infiltration will
21
occur within larger areas dedicated to the public. Smaller infiltration facilities may also be
located on private properties.
It is the City of Madison’s intention that development within the amendment area have
minimal impact on the Dreger property located between the amendment area and Lower
Badger Mill Creek. The Dreger’s farming operations are expected to continue for many
years. In order to mitigate stormwater impacts from future development in the amendment
area on the Dreger property, City Engineering is recommending that developers in the
amendment area be required to limit post-development stormwater discharge volumes from
the 1, 2, and 10-year storm events to no more than the pre-development volumes for these
same events. They also recommended that for the 100-year storm event, developers be
required to detain (match peak flow rates) the post-development peak to the predevelopment peak. This recommendation is similar to the requirements placed on the Pine
Hill Farm development that is located along Valley View Road within the Lower Badger Mill
Creek watershed.
As an alternative, the City of Madison has proposed to allow developers in the amendment
area to pursue conveyance of stormwater discharge via a stormwater pipe across the Dreger
property if an easement can be obtained. A pipe could be located sufficiently beneath the
ground surface to permit continued cultivation of the agricultural fields. The pipe could
follow a similar route as the potential gravity sanitary sewer main and coincide with the
alignment of planned future streets. In order to implement this option, developers in the
amendment area would need to obtain an easement from the Dregers to accommodate the
pipe. If a pipe was established, impacts on the Dreger’s farming operations would also be
mitigated and then the City would require that the typical stormwater requirements for
development in the Lower Badger Mill Creek would then apply (i.e. no post development
volume control to predevelopment volumes). However, this would not mitigate the potential
impacts of increased stormwater volumes on Lower Badger Mill Creek.
The City also proposes smaller scale stormwater infiltration facilities such as rain gardens
and bioswales in the amendment area in addition to larger infiltration basins. These
facilities may be incorporated into many different areas within the amendment area. It is
currently anticipated that features could be located on public property in the street terraces
and within boulevard streets. They could also be located on private property in many
different locations to serve individual lots or an entire block. These features are most
effective in areas with permeable soils. The Dane County Soil Survey indicates that some of
the amendment area has relatively permeable soils. Specific locations for infiltration
facilities, as well as specific system designs is proposed to be determined as part of more
detailed development planning when more precise soil information is available.
Performance Standards
The City has proposed that the stormwater management system meet the following
performance standards required by the State of Wisconsin (NR 151), Dane County (Chapter
14), and City of Madison (Chapter 37) stormwater regulations:
1. Require post-construction sediment control (reduce total suspended solids leaving the
site by at least 80%) for the average annual rainfall. This is the standard required by
the State of Wisconsin, Dane County, and City of Madison.
22
2. Require post-construction peak runoff rate control for the 2-, 10-, and 100-year, 24hour design storms to pre-development peak runoff rates. The City of Madison
Stormwater Ordinance requires a maximum runoff curve number of 68 for hydrologic
soil group B (pre-development). This is a more stringent standard than NR 151, which
only requires detention of the 2-yr 24-hr design storm and the Dane County Ordinance,
which does not require detention of the 100-yr 24-hr design storm.
3. Require post-development infiltration of at least 90% of pre-development infiltration
volumes in residential areas, up to a 1% site area cap and at least 60% of predevelopment infiltration volumes in commercial areas, up to a 2% site area cap. This is
the standard required by State of Wisconsin, Dane County (which allows an alternate
standard of meeting the estimated average annual recharge rate of 7.6 inches per year
when site area caps are reached), and City of Madison stormwater regulations.
4. Require thermal control in accordance with local ordinances.
5. Require construction site erosion control (limit total off-site soil loss to a maximum of
7.5 tons per acre per year) with the installation of best management practices prior to
land disturbing activities in accordance with state and local ordinances.
In addition, if the development will discharge stormwater onto the adjacent farm field, then
the City of Madison proposes that developers in the amendment area be required to limit
post-development stormwater discharge volumes from the 1, 2, and 10-year storm events to
no more than the pre-development volumes for these same events.
Environmental Corridors. The amendment proposal includes 4.9 acres of Environmental
Corridors for stormwater management, facilities, parks, and open space. There are no
significant natural features within the amendment area that require inclusion in
Environmental Corridors.
The proposed environmental corridors meet CARPC criteria for corridor delineation.
Public Safety Services. The City of Madison Police Department provides police protection
services to the City of Madison and will provide services to the portion of the proposed
amendment within the City and any additional lands as they are annexed to the City in the
future as part of the Department’s West District. The West District operates from a station
on McKenna Boulevard, near Raymond Road, approximately three miles from the
amendment area. Lands in the Town of Verona will continue to receive services from the
Dane County Sheriff’s Department.
The City currently has 438 full time equivalent police officers, or about 1.93 officers per
1,000 residents. The number of officers and the ratio to population varies over time but the
City plans to maintain average police staffing levels at about this level in the future.
The City of Madison Fire Department provides fire protection and emergency medical
services for the City of Madison. The City department will serve those areas within the
amendment area within the City. The Madison fire station serving the amendment area is
Fire Station No. 7, located at 1810 McKenna Boulevard. Response time to the amendment
area is estimated to be approximately 4to 6 minutes. The City of Madison has an ISO fire
rating of three (3), well within CARPC fire protection guidelines. A new Madison Fire
23
Station, being constructed at 400 South Point Road, approximately 2.5 miles north of the
amendment area, will improve service to the area.
Lands within the Town of Verona will continue to receive fire and EMS services through the
Verona Fire District and Fitch-Rona EMS.
Streets and Sanitation Services. The Madison Streets Division provides solid waste
collection, street repair, street cleaning and snow and ice control to the amendment area.
Street maintenance services are provided on City of Madison public streets. These services
will be provided to the amendment area from the West Badger Public Works Facility.
Lands within the amendment area that are not in the City of Madison will continue to
receive services through the Town of Verona.
School and Park Facilities. The part of the amendment area in the City of Madison is in
the Madison Metropolitan School District and the remainder is in the Verona Area School
District. The two school districts approved a Boundary agreement in 1999 that will result in
all lands of the amendment area eventually being in the Madison Metropolitan School
District.
Currently, students residing in the Madison portion of the amendment area would attend
Olson Elementary School at 801 Redan Drive, Toki Middle School, 5606 Russett Road, and
Memorial High School, 201 South Gammon Road.
Urban Transportation System. The amendment area is for the first phase of development
of the Shady Wood Neighborhood. The development plan for the neighborhood proposes an
interconnected local street system with relatively short blocks and multiple access points to
both Mid-Town Road and Woods Road. The access points to Mid-Town Road align directly
with the existing streets to the north, Hidden Hill Drive and Meadow Road. The plan
recommends a 108-foot right-of-way for Mid-Town Road to accommodate a four-lane
divided roadway with bike lanes in the future. An 80- to 90-foot right-of-way is
recommended for Woods Road to accommodate a planned future two-lane divided roadway
with bike lanes.
A multi-use path is proposed along the north side of the planned Ice Age Trail Open Space
Corridor, which would extend north of Mid-Town Road connecting to a planned regional
path that would extend to Old Sauk Road. If a proposed east-west street across the open
space corridor south of Mid-Town Road is not constructed, the plan calls for a multi-use
path instead in order to maintain an east-west pedestrian/bicycle route through the
neighborhood. The plan also includes a short pedestrian/bicycle path connection east to
Woods Road south of Mid-Town Road connecting to a street that, in combination with a
planned path segment, will provide a pedestrian/bicycle route over to CTH M and the
planned path in that corridor. Sidewalks will be provided on both sides of all streets.
CTH M is programmed for reconstruction and expansion to a divided four-lane roadway
over the next five years. The southernmost segment from north of Cross Country Road to
north of CTH PD is programmed for construction in 2013 and will include improvements to
the CTH M/CTH PD intersection. Raymond Road is planned to be cul-de-saced or realigned
as part of the Meriter West campus development to eliminate the unsafe five-legged
intersection with CTH M and CTH PD. A multi-use path is planned in the CTH M corridor
24
on the west side that would ultimately connect to the Ice Age Trail path east of CTH M. The
segment of the Ice Age Trail path from CTH PD south to the Military Ridge Trail has federal
funding and will be constructed in early 2010.
6. Impacts or Effects of Proposal
Surface Water Impacts. Development typically creates impervious surfaces (i.e., streets,
parking areas, and roofs) and alters the natural drainage system (i.e., natural swales are
replaced by storm sewer) resulting in increased stormwater runoff rates and volumes, as well
as reduced infiltration. Development can also cause substantial soil erosion and off-site
siltation during construction activities. Scientific research has well documented that without
effective mitigation measures, the potential impacts of development on receiving water bodies
can include:
·
Flashier stream flows (sudden higher peaks)
·
Increased frequency and duration of bankfull flows
·
Reduced groundwater recharge and stream base flow
·
Greater fluctuations in wetland water levels
·
Increased frequency, level, and duration of flooding
·
Additional nutrients and contaminants entering the receiving water bodies
·
Geomorphic changes in receiving streams and wetlands
Natural drainage systems attempt to adapt themselves to the dominant flow conditions. The
frequency of bank-full events often increase with urbanization and the stream attempts to
enlarge its cross section to reach a new equilibrium with the increased channel forming
flows. Higher flow velocities and volumes increase the erosive force in a channel, which alters
streambed and bank stability. This can result in channel incision, bank undercutting,
increased bank erosion, and increased sediment transport. The results are often wider,
straighter, sediment laden streams, greater water level fluctuations, as well as loss of riparian
cover, shoreland, and aquatic habitat.
These changes in hydrology, combined with increased pollutant loading, can have a
dramatic effect on the aquatic ecosystem of streams. It is important to realize that flow is a
major determinant of the physical habitat in a stream, which in turn determines the biotic
composition of stream communities. A growing body of literature documents that channel
geomorphology, habitat structure, and complexity are determined by prevailing flow
conditions, which in turn determine the biota that can inhabit the area. This is true for
both the fish as well as the aquatic insects upon which they feed. Studies of streams
affected by urbanization have shown that fish populations either disappear or become
dominated by rough fish that can tolerate the associated lower water quality levels.
The City proposes to mitigate the urban non-point source impacts of the proposed
development by implementing various stormwater best management practices that are
designed and constructed in accordance with state and local performance standards.
Although these measures and standards meet or exceed current minimum standards, and
will reduce the likely impacts of the proposed development, they do not completely address
the potential impacts on the receiving waters.
Implications for Lower Badger Mill Creek and Badger Mill Creek
The design storms in the City’s stormwater ordinance (2, 10, and 100-year storms)
represent extreme events within the annual precipitation range for a watershed. These
25
extreme storms are unusual and represent only a small fraction of the annual precipitation
falling on a site and, consequently, the annual runoff flowing off developed areas. The peak
flow rate control standard offers little to no control of runoff from the smaller, more
frequent storms that produce most of the runoff reaching streams. It is runoff from these
small storms that largely determine how a stream will function and transform in response
to more erosive velocities and flashier stream flows. Therefore, CARPC staff recommends
that the 1-yr 24-hr storm also be included in the range of design storms used for peak flow
rate control.
The City of Madison proposes that developers in the amendment area be required to limit
post-development stormwater discharge volumes from the 1, 2, and 10-year storm events to
no more than the pre-development volumes for these same events if the development will
discharge stormwater onto the adjacent farm field, but not if the stormwater will discharge
directly into Lower Badger Mill Creek via a storm sewer. Increases in runoff volume from a
site can lead to increases in flood peaks or durations at downstream locations, even if peak
runoff rates from sites are controlled. In particular, there is the issue of greater frequency,
durations, and sizes of smaller storms that can erode the channel and negatively affect fish
and aquatic life downstream. CARPC staff recommends that a volume control standard be
used to mitigate the impacts on the receiving stream.
Information on the channel geometry, bank vegetation, bank and bed material, channel
forming discharge, and bank stability of Lower Badger Mill Creek has not been evaluated as
part of this development proposal and is not known to be available from other studies. This
resource specific information would help determine the carrying capacity of Lower Badger
Mill Creek for stormwater runoff volumes. Without this site-specific information and
analysis it is prudent to control post-development runoff volumes to no greater than
predevelopment volumes (100% pre-development stay on volume). This will promote the
goal of maintaining existing hydrology in Lower Badger Mill Creek and Badger Mill Creek,
which is critically important to maintaining the health of these water bodies, and the
biological communities that they support.
NR 151 and Dane County Chapter 14 prohibit the infiltration of stormwater in areas within
1,000 feet upgradient or within 100 feet downgradient of karst features. The western edge
of the amendment area is over 2,400 feet from Richardson’s cave, well outside of the area
where infiltration is prohibited. This is an issue that will need to be addressed in the
stormwater management planning for the larger Shady Wood Neighborhood planning area.
Richardson’s cave has been protected from surface water intrusion by a berm. Maintaining
the hydrology of the stream in this area would help prevent future flooding of the cave,
which can have groundwater quality impacts.
It is also necessary to acknowledge that the City of Madison occupies a small portion of the
watershed and a volume control standard is necessary for the entire watershed if the trends
towards improved fisheries in the Badger Mill Creek are to be continued, and if the fisheries
in the Sugar River are to be maintained or improved. Therefore, it is necessary to conduct
broader, comprehensive, stormwater management planning for these watersheds to
effectively deal with increasing volumes of stormwater runoff to mimic pre-development
(i.e., existing) hydrologic conditions and foster improvements where opportunities permit.
The amendment area includes seasonal high groundwater tables as shown in Map 9. These
areas have limited suitability for buildings with basements due to the seasonal high water
26
table, which can cause problems with groundwater induced flooding. On-site soils
investigations should be conducted between April and June to determine the actual extent
of seasonal high groundwater tables in the amendment area to prevent future problems.
Staff recommends that these areas be zoned to restrict buildings with basements. If
buildings with basements and sump pumps are allowed, the stormwater management plan
must account for this additional water volume in the design of the stormwater management
facilities.
Groundwater Impacts. An important potential impact associated with urban
development is declining groundwater levels resulting from groundwater pumping and
wastewater diversion. Groundwater modeling conducted by CARPC staff indicates an
eight-foot drawdown in water table levels in the vicinity of the amendment area as a result
of anticipated 2030 well withdrawals. This is in addition to the existing 22 foot drawdown
resulting from current well withdrawals.
Simulated Streamflows Resulting from Current and Future Development Scenarios
Pre-Development
2000
2030
Upper Sugar River
29.52 cfs
27.70 (-6%)
26.87 (-9%)
Badger Mill Creek
5.37 cfs
3.50 (-34%)
2.79 (-48%)
Lower Sugar River
34.89 cfs
31.20 (-11%)
29.66 (-15%)
Note: Simulated discharge represent groundwater contributions to streamflow only and does not include
the discharge of approximately 4 dvs from the MMSD effluent return line to Badger Mill Creek.
In addition, as natural areas are converted to urban development the ground/surface
water balance in streams and wetlands shifts from a groundwater-dominated system to
one dominated by surface water runoff, with subsequent reductions in stream quality and
transitions to more tolerant biological communities. Groundwater modeling conducted by
CARPC staff indicates that water table levels will be reduced by approximately two feet as
a result of planned development. This has significant implications for baseflow in streams
and wetlands, particularly during critical dry-weather periods. Since the impacts are
gradual and cumulative, it is important to minimize them for all development. One
promising strategy is to try and mimic pre-development hydrology. Maintaining predevelopment infiltration also helps reduce the peak flow rate and volume of runoff,
resulting in less streambank erosion, cutting and widening of channels and stream beds,
and less pollutants being transported to the stream (surface water impacts).
The applicant proposes to mitigate the groundwater impacts of the proposal by meeting
existing state, county, and municipal standards. RPC staff recommends an average annual
recharge rate of 9 to 10 inches per year, with no cap on the site infiltration area, based on
current recharge estimates for this part of Dane County by WGNHS 2009. This will make
up for the amount of recharge loss resulting from impervious development. It will not,
however, make up for the amount of water lost due to well water withdrawals. Mitigating
the impacts of high capacity well withdrawals is a regional issue. Collaboration,
cooperation, and coordination is needed among local units of government to achieve goals
of sustainability. This is being coordinated at the regional level and will take some time to
accomplish. In the meantime, it is recommended the applicant exceed the natural recharge
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rate, where possible, to mitigate its water use, as well as fostering water conservation and
reuse practices.
Karst features often provide a direct conduit to groundwater, therefore the potential for the
contamination of groundwater from polluted stormwater runoff is a concern in these areas.
The western edge of the amendment area is over 2,400 feet from Richardson’s cave, well
outside of the area of concern. This is an issue that will need to be addressed in the
stormwater management planning for the larger Shady Wood Neighborhood planning area.
Transportation System Impacts. The amendment area includes the first phase of the
Shady Wood Neighborhood Development Plan, which calls for 22.5 acres of residential
development consisting of 135 housing units. The plan recommends a mix of single-family,
duplex, and townhome units.
When fully developed, the amendment area could be expected to generate around 1,100
one-way vehicle trips on an average weekday—a little more or less depending upon the mix
of housing types. The entire Shady Wood neighborhood could be expected to generate
approximately 6,000 one-way vehicle trips when fully developed.
In 2008, the average weekday traffic (AWT) volume on Mid-Town Road was 1,650 west of
Woods Road and 5,250 west of CTH M. The 2008 AWT volume on Woods Road south of
Mid-Town Road was 1,950. The 2008 AWT volume on CTH M south of Mid-Town Road was
21,550.
There is sufficient capacity on Mid-Town Road and Woods Road to handle the expected
traffic from the amendment area. Minor intersection improvements may be needed on those
roads at the access points to the neighborhood. Traffic volumes on CTH M indicate that it is
experiencing a very high level of congestion during peak periods. However, the planned
reconstruction and expansion of CTH M along with improvements to the intersecting streets
will address both the capacity and safety issues in that corridor.
School System Impacts. The amendment proposal adds an estimated 61 students to the
Madison Metropolitan School District (MMSD). The MMSD has experienced declining
enrollment over the last several years. However, the southwest side of the district has been
growing and Olson Elementary School, serving the area of the amendment, was opened in
the 2008-09 school year.
7. Alternatives
The City of Madison Comprehensive Plan, adopted in 2006, defines nine Peripheral Planning
Areas (PPAs) at the edges of the urban area. The PPAs are areas that the City determined as
having some near or long-term potential for future urban development and City of Madison
expansion. The Shady Wood planning area is within Peripheral Planning Area A, a “Group
1” district recommended as a potential location for relatively near-term City of Madison
expansion and urban development. The plan anticipated development to begin in at least
portions of all Group 1 Peripheral Planning Areas within one to five years.
The projected population growth warrants expansion of the Central Urban Service Area,
and the City has identified Development Phasing Area A of the Shady Wood Neighborhood
as a potential growth area. Although a number of potential alternative locations for CUSA
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expansion exist, the City has identified this location through the planning processes as
having near term potential for beginning development.
8. Controversies, Comments Received, Unresolved Issues
A public hearing before the Capital Area Regional Planning Commission is scheduled for
November 12, 2009. No comments have been received and no controversies are noted.
9. Conclusions and Staff Recommendation
The proposed amendment provides the full range of urban services and is within the
twenty-year service area land demand for the Central Urban Service Area. There are no
significant natural resources in the amendment area that would require inclusion in
environmental corridors.
The City of Madison has proposed stormwater management performance standards that are
more stringent than those in NR 151 and the Dane County Chapter 14 to help mitigate the
adverse impacts of the proposed development. The amendment area is a small percentage
(<1%) of the Lower Badger Mill Creek Watershed and an even smaller percentage of the
Badger Mill Creek Watershed. However, the cumulative effects of increased peak flow rates
and volumes of stormwater runoff warrant more stringent standards on a consistent,
watershed-wide basis.
The peak flow rate control requirement in the City of Madison stormwater ordinance for this
watershed covers a larger design storm (100-yr 24-hr) than required by NR 151 or Dane
County Chapter 14. Increased peak flow rates from smaller storms can also result in
erosive velocities and flashier stream flows. Therefore, CARPC staff recommends that the 1yr 24-hr storm also be included in the range of design storms used for peak flow rate
control. Some communities, such as the Cities of Middleton and Verona, have adopted
more protective maximum predevelopment runoff curve numbers than those required by
NR 151 or Dane County Chapter 14. The City of Madison should also consider adopting
more protective maximum predevelopment runoff curve numbers, at least for sensitive
watersheds.
The City of Madison proposes that developers in the amendment area be required to limit
post-development stormwater discharge volumes from the 1, 2, and 10-year storm events to
no more than the pre-development volumes for these same events only if the development
will discharge stormwater onto the adjacent farm field and not if the stormwater will
discharge directly into Lower Badger Mill Creek via a storm sewer. It is difficult to reconcile
the City’s inconsistency between acknowledging the need to mitigate stormwater volume
impacts on an adjacent farm, but not on the receiving streams. Therefore staff recommends
the performance standard of maintaining pre-development runoff volumes to protect the
natural resources that are downstream of the proposed amendment areas. Rainfall series
data provide more accurate modeling of actual rainfall intensity and antecedent moisture
conditions than synthetic design storms, therefore CARPC staff recommend that the
standard 1-year and 5-year annual rainfall series be used to demonstrate compliance with
the volume control standard. If necessary, retrofit practices could be implemented in other
areas of the subwatershed to meet a volume control and groundwater recharge standard on
a subwatershed basis.
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It is important to note that the objective of protecting, improving, and restoring water
quality and fisheries can only be realized through stringent standards that are applied to
the entire watershed. One such protective standard is maintaining predevelopment runoff
volumes for all storm events to maintain the hydrology of these streams. Staff has
previously recommended that a standard of no increase in runoff volume be adopted for the
Badger Mill Creek sub-watershed and that a watershed level intergovernmental agreement
be facilitated by the CARPC so that all new development in the watershed is required to
uphold this standard. This may be the only practicable approach that would prevent
further degradation of these sensitive cold fisheries. The Commission has referred this
issue to its Environmental Resources Technical Advisory Committee for discussion and
recommendation.
Staff recommends approval with the following conditions based on the proposed land uses
and services. The conditions establish the more protective standards expected for
stormwater management within the Badger Mill Creek Watershed.
Submit a detailed stormwater management plan for CARPC and DCL&WCD staff review
and approval prior to any land disturbing activities in the amendment area. The stormwater
management plan should include the following:
a.
Install stormwater practices prior to other land disturbing activities and protect
these practices from compaction and sedimentation during land disturbing
activities or restore them after land disturbing activities are completed
b.
Provide at least 80% sediment control for the amendment area in accordance with
existing ordinances
c.
Control peak rates of runoff for the 1, 2, 10, and 100-year 24-hour design storms
to “predevelopment” levels
d.
Control post development runoff volumes to be equal to or less than predevelopment runoff volumes for the one-year average annual rainfall period and
five-year average rainfall period in addition to the 1, 2, and 10-year 24-hour design
storms
e.
Maintain WGNHS pre-development groundwater recharge rates (9 to 10 inches per
year) with no caps on the extent of infiltration areas
f.
Provide deep tilling to restore all areas compacted during construction
g.
Control the thermal impacts of stormwater discharge to meet WDNR cold water
standards in accordance with existing ordinances
h.
Stormwater practices should be publicly managed, or have a perpetual legal
maintenance agreement finalized with the City
i.
Include stormwater management facilities in environmental corridors.
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Resolution CARPC No. 2009-13
Amending the Dane County Land Use and Transportation Plan and Dane County Water
Quality Plan by Revising the Central Urban Service Area Boundary and Environmental
Corridors in the City of Madison and Town of Verona
WHEREAS, the Capital Area Regional Planning Commission has adopted, amended and
reaffirmed the Dane County Land Use and Transportation Plan and Water Quality
Plan; and
WHEREAS, said plans delineate urban service areas as amended through October
2009; and
WHEREAS, the City of Madison has requested an addition to the Central Urban Service
Area, and is consistent with the Shady Wood Neighborhood Development Plan, the City of
Madison Comprehensive Plan, and the City of Madison and City of Verona Intergovernmental
Cooperation Agreement, adopted in 1996; and
WHEREAS, a staff analysis of the proposed amendment has been prepared, which
indicates that the amendment is generally consistent with adopted regional plans and policies.
NOW, THEREFORE, BE IT RESOLVED that in accordance with §66.0309, Wis. Stats.,
and Sec. 208 of Public Law 92–500, the Capital Area Regional Planning Commission amends
the Dane County Land Use and Transportation Plan and recommends the amendment of
the Dane County Water Quality Plan by revising the Central Urban Service Area boundary
and environmental corridors as shown on the attached map.
Adoption of this amendment is based on the land use and urban service plans
submitted in support of this amendment, and conditioned on the City of Madison pursuing the
following:
Date Adopted
Jeff Miller, Chairperson