1. education
2. school

CARPC AGENDA COVER SHEET
Executive Summary
April 9, 2009
Item 6
Re: Consideration of Resolution CARPC No. 2009-7 amending the Dane County Land
Use and Transportation Plan and the Dane County Water Quality Plan by revising
the Central Urban Service Area boundary and Environmental Corridors in the City
of Madison and the Town of Middleton.
Decision Items:
1. Consideration of Resolution CARPC No. 2009-7
Staff Comment on Item: The proposed amendment will add 58.3 acres to Central Urban
Service Area (CUSA) in the City of Madison and the Town of Middleton between West Old Sauk
Road and Blackhawk Road at Schewe Road in the Blackhawk neighborhood. The amendment
area includes 13.7 acres of existing residential development (seven single family residences)
and 1.7 acres of existing street right-of-way. The development proposal includes 28.5 acres
owned by the Middleton-Cross Plains Area School District (MCPASD). An elementary school will
be built on the parcel in the coming year, with the potential of adding a middle school on the
parcel at a future time. (A referendum to authorize funding for the new elementary school is
scheduled for April 7, 2009.) An additional 20.6 acres are proposed for residential development
with 21 housing units accommodating an estimated population of 56, including nine schoolaged children. The amendment will add 40.0 developable acres to the Central Urban Service
Area.
The proposed amendment is located to allow some of the students who live nearby to be able to
walk or bike to school. The school is being designed with LEED standards and low impact
development stormwater measures. A portion of the land will be residential development
consistent with the adjacent Blackhawk neighborhood. The amendment area also includes nine
existing residential lots on its northern and southern edges. These are large lots which were
developed with septic systems in the Town, and are being included in case there is a need for
sanitary sewer in the future.
The amendment area includes an area (3.2 acres) of soils with hydric inclusions and steep
slopes. These areas have a limited suitability for development due to their high water table or
steep slopes. The proposed buildings are not located within these areas. No other
environmentally sensitive area requiring inclusion in environmental corridors were identified in
the area.
The impacts of the proposed development have been addressed through proposed infiltration
measures and existing and planned stormwater management facilities which serve this area. It
is advisable in general for the area to maintain pre-development runoff volumes as well as
peaks. In the portion of the amendment area located in the Black Earth Creek watershed, it is
important to maintain pre-development volumes and peaks for any future redevelopment of the
existing residential lots.
Page 1 of 2
Staff Recommendation: Staff recommends approval of the amendment based on the proposed
land uses and services and conditioned 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:
x
Install stormwater practices for each area prior to other land disturbing activities.
x
Control peak rates of runoff for all storms up to and including the 10-year 24-hour
event to predevelopment levels.
x
Demonstrate that runoff from storm event larger than the 10-year 24-hour event
will not cause erosive velocities or increase downstream flooding.
x
Maximize the infiltration of rainfall to maintain pre-development runoff volumes to
the extent practicable and protect infiltration areas from compaction and
sedimentation. This is especially critical in the small area of existing residential
development which is in the Black Earth Creek watershed.
x
Provide deep tilling in all open space areas.
x
Prevent increased erosion.
x
Provide stormwater quality ponds for all developed areas within the amendment
area.
x
Stormwater practices should be publicly managed, or have a perpetual legal
maintenance agreement finalized with the City.
Materials Presented with Item:
1.
Staff Analysis dated April 3, 2009
2.
State Historical Society letter of comment dated March 23, 2009
3.
Draft Resolution CARPC No. 2009-7
Contact for Further Information:
Kamran Mesbah, Deputy Director
266-9283
[email protected]
Page 2 of 2
04/03/09
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 City of
Madison and Town of Middleton (Middleton-Cross Plains School Site)
1. Applicant: City of Madison
2. Description of Proposal
The proposed amendment will add 58.3 acres to Central Urban Service Area (CUSA) in the
City of Madison and the Town of Middleton between West Old Sauk Road and Blackhawk
Road at Schewe Road in the Blackhawk neighborhood. The amendment area includes 13.7
acres of existing residential development (seven single family residences) and 1.7 acres of
existing street right-of-way. The development proposal includes 28.5 acres owned by the
Middleton-Cross Plains Area School District (MCPASD). An elementary school will be built
on the parcel in the coming year, with the potential of adding a middle school on the parcel
at a future time. (A referendum to authorize funding for the new elementary school is
scheduled for April 7, 2009.) An additional 20.6 acres are proposed for residential
development with 21 housing units accommodating an estimated population of 56,
including 9 school-aged children. Street right-of way is proposed for 6.3 acres, and
stormwater management facilities are proposed for 2.9 acres that will be designated as
environmental corridors. The amendment will add 40.0 developable acres to the Central
Urban Service Area (see Table 1 and Maps 1, 2, and 3b).
Table 1: Central Urban Service Area, M-CP School
Requested by the City of Madison
Proposed
Density (units/acre)
Total
% of
Housing
Land Use
Proposal
( ac.)
Total
Units
20.6
35%
21
56
9
13.7
20.6
35%
21
56
9
13.7
28.5
49%
Stormwater Mgmt.
2.9
5%
Street R-O-W
6.3
11%
1.7
58.3
100%
15.4
Residential
1.0
Residential Total
1.0
CUSA
6.6
Institutional (School)
TOTAL
No. of
No. of
Existing Environ. Develop-
Persons Students Develop. Corridor
able
2.9
2.9
40.0
39.4 acres in the City of Madison (68%) & 18.9 acres (32%) in the Town of Middleton
Source: City of Madison Planning Submittal and CARPC
The current plan for the elementary school calls for a two-story building of approximately
101,000 square feet, designed to accommodate approximately 500 students. Play yards,
athletic fields and other open space uses are planned for the northern and southern
portions of the site. The school development will be buffered from the Town of Middleton
Pope Farm Park to the west by a 150-foot no-build zone along the western edge of the
property and a 400-foot no-build zone in the northern part of the school property. The
amendment application suggests that a future middle school south of the elementary
school might be about 160,000 square feet and accommodate 650 to 700 students, but no
definite time-frame for this facility has been established by MCPASD (see Map 3c).
1
Development of the MCPASD property will include a new north-south street connecting
Blackhawk Road and West Old Sauk Road. The future school sites are located on the west
side of the new roadway, and 12 new single-family residential units are proposed for 3.4
acres on the east side (approximately 3.5 units per acre). While noting that the nine
existing large-lot residential parcels comprising the remainder of the residential component
of the amendment may be subdivided or accommodate higher density in the future, the
City of Madison does not propose redevelopment at this time. The application assumes that
the two vacant lots will each accommodate one residence and the seven existing residences
will remain unchanged. With these existing low-density lots, the proposed overall
residential density of the amendment area is 1.0 unit per acre.
3. Existing Environment
Natural Resources. The proposed amendment area is diagonally bisected by two
ridgelines, dividing it into three watersheds as shown on Maps 1 and 4. A smaller, northern
area drains 2,500 feet north and west to the upper reach of the Back Earth Creek
Watershed. The larger, central area drains about one mile to the east and south through
the City of Madison to a regional stormwater facility in the Blackhawk development, and
then to South Fork Pheasant Branch one mile further to the east. The tributary is in a City
of Madison greenway and environmental corridor and is part of the Pheasant Branch Creek
subwatershed of the Yahara River Watershed in the Rock River Basin. A small area in the
southwest corner drains 2.5 miles south to a tributary of the Badger Mill Creek in the
Upper Sugar River Watershed in the Sugar-Pecatonica River Basin. This tributary flows
through numerous natural pothole wetlands and ponds, disappears south of CTH PD, and
reappears on the northwest side of the City of Verona, eventually flowing into Badger Mill
Creek southwest of the city.
The segment of Black Earth Creek northwest of the amendment area supports a warm
water forage fishery. It is approximately one-half mile upstream of a segment of Black Earth
Creek that supports a Class I trout stream and is designated as an Outstanding Resource
Water. The water quality rating is good, based on the Hilsenhoff Biotic Index. The
amendment area is in a thermally sensitive part of the Black Earth Creek Watershed.
Urban and agricultural non-point source pollution in the watershed has impacted flow,
temperature, and habitat in this stretch of the watershed. There are rare aquatic species in
Black Earth Creek.
The portion of the amendment area in the Pheasant Branch subwatershed drains to South
Fork Pheasant Branch which is designated as a limited forage fishery. The water quality
rating is poor, based on the Hilsenhoff Biotic Index. Pheasant Branch is affected by
degraded habitat, low dissolved oxygen, turbidity, sedimentation, and hydrologic change.
The portion of the amendment area in the Badger Mill Creek Watershed drains to an
intermittent tributary, which flows into Badger Mill Creek south of the City of Verona.
The amendment area does not include any wetland areas according to the Wisconsin
Department of Natural Resources Wetland Inventory. It does not include any floodplains
according to the Federal Emergency Management Agency floodplain maps.
The Land Type Associations of Wisconsin classifies the surficial geology of the site as a
rolling, hummocky, moraine and glacial outwash plain complex with scattered bedrock
knolls. This geology has soil substrates that are generally favorable for infiltration
measures.
2
Blackston e Co
Rose Court
Black Earth
Creek Watershed
u rt
CITY OF
MIDDLETON
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Blue
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Shadow Ridge Trail
k et La n
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Twin Valley Road
TOWN OF
MIDDLETON
n
ll e
Fa
d Sk
F
Cone
Blue Aster Trail
Re
W i nd
in
Sandhill R o a
ay
Blackhawk Road
Six Mile and Pheasant
Branch Creek
Watershed
B
ay
W Old Sauk Road
Schewe Road
CITY OF
MADISON
ear
w
Cl a
W
H e a th
er
o
Kn
ll L
e
an
Pioneer Road
Central
USA
White Fox Lane
Upper Sugar River
Watershed
Rivercrest Drive
Elderberry Road
Amendment
o intSTrail
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Ca
Map 1
Existing Urban Service Area Boundary
Environmental Corridor to be Added (2.9 acres)
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Middleton
Service Area to be Added (58.3 acres)
Watershed Boundary
Proposed Urban Service Area Boundary
Parcels
2 Apr. 2009
0
1000
Existing Environmental Corridor
Incorporated Area
Feet
Prepared by staff
of the CARPC.
u rt
la
Ea
C
ek
Blackston e Co
Rose Court
B
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h
rt
re
gW
d
y
He r o
ll L
e
an
n Drive
ai l
rs T r
we
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et
ay
Schewe Road
Cr
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B
Pioneer Road
er
o
Kn
Bear C l aw
Wa
e
pp
Blue
k et La n
Tr a
ive
f Dr
lo
Twin Valley Road
L
ea
y Dr i v e
Shadow Ridge Trail
W Old Sauk Road
H e a th
n
ll e
Fa
d Sk
F
Cone
Blue Aster Trail
Re
W i nd
in
Sandhill R o a
ay
Blackhawk Road
ear
w
Cl a
W
White Fox Lane
Rivercrest Drive
Elderberry Road
rd
Ca
i n al
Po int Trail
Map 2 (Aerial 2008)
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Middleton
2 Apr. 2009
0
Existing Urban Service Area Boundary
Environmental Corridor to be Added
Proposed Urban Service Area Boundary
Incorporated Area
1000
Feet
Prepared by staff
of the CARPC.
e
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La
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Wil
Capitol Court
Wayside Road
lo w
Pine h
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Schwartz Road
Ni
14
Low Road
Tw
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Pleasant View Road
in
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ad
Rose Court
Ro
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Blackhawk Road
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Shawn Trail
Wilrich Street
ne
Mineral Point Road
Pioneer Place
W Mineral Point Road
on
P ra
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W
ay
Si
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Mineral Point Road
Brader Way
h
M at
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Map 3a Planned Land Use
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Middleton
y
D rive
Par
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La
me
al
in
awn
et
sy
W
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B
ive
Pi n
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Elderberry Road
i n t Trail
Po
South Point Road
S w ob
od
a
ad
Ro
ne
Pioneer Road
ll L a
Fargo Trail
Goth Road
W Old Sauk Road
r K no
Heathe
A lmo
ad
Shadow Ridge T
rai
l
Plan Boundary
Extractive
Right of Way
Incorporated Area
Industrial
Transportation
Agriculture
Institutional or Governmental
Under Construction
Cemetery
Low Density Residential
Vacant
Commercial Forest
Medium Density Residential
Water
Commercial Sales or Services
Open Land
Woodland
Communications or Utilities
Outdoor Recreation
2 Apr. 2009
0
2000
Feet
Prepared by staff
of the CARPC.
MAP 3b
CITY OF
MIDDLETON
CUSA AMENDMENT AREA
Blackhawk Road
Middleton-Cross Plains
School Site CUSA Amendment
January 2009
CURRENT CUSA BOUNDARY
PROPOSE D CUSA BOUNDARY
River Birch Rd.
l
Fa
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pe
ap
r
T
rs
CITY OF MIDDLETON
.
Tr
UNINCORPORATED
JURIS DICTIONS
Winding Way
ENVIRONMENTAL CORRIDOR
PROPOSE D
ENVIRONMENTAL CORRIDOR
(Approx. 2.9 acres)
CONCEPTUAL STREET PATTERN
Be
a
Shadow Ridge Tr.
INTER-GOVE RNMENTAL
BOUNDARY AGREE MENTS
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City of Madison - City of M iddleton
City of Madison - Town of Middleton
W
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W. Old Sauk Road
Schewe Road
M:/arac/avdata/c_plan/cusa-central urban service area/Middleton-Cross Plains School Site CUSA Amend
PROPOSED
CUSA
AMENDMENT
AREA
58.3 Ac.
Blue Aster Tr.
Pope Farm Park
len
Le
CITY OF MADISON
r.
fD
CURRENT
URBAN SERVICE AREA
Data Source:
Department of Planning & Community & Economic Development,
Planning Division
0
500
1,000
Feet
City of Ma dison
Department of Planning & Community
& Economic Development, Planning Division
MAP 3c
According to the Natural Resource Conservation Service Soil Survey of Dane County, the
soils of the amendment area are in the Batavia-Houghton-Dresden Association and the
Dodge-St. Charles-McHenry Association. The Batavia-Houghton-Dresden Association soils
are well-drained and poorly-drained, silt loams and mucks that are underlain by silt, sand,
and gravel. The Dodge-St. Charles-McHenry Association soils are well-drained and
moderately well-drained, deep silt loams underlain by sandy loam glacial till. Map 5 shows
the soils for the amendment area, and Map 6 shows limitations posed by soils. Tables 2
and 3 show detailed characteristics for soils of the amendment area..
Depth to groundwater is generally over 25 feet in the amendment area. There is a seasonal
high water table of 2 to 5 feet below the ground surface in the areas with Radford Silt Loam
and St. Charles Silt Loam soils. (Map 6a shows the areas with a seasonal high water table
of 5 feet or less.) These areas have a moderate to very limited suitability for buildings with
basements due to the high water table. Depth to bedrock is 10 to 50 feet throughout the
amendment area. According to Wisconsin Geological and Natural History Survey mapping,
the bedrock in the amendment area is the Prairie du Chien Group, which is dolomite with
some sandstone and shale.
Table 2
Soils Classification
Soil
% of Area
General Characteristics
McHenry Silt Loam, eroded;
MdC2
28
Deep, well-drained soils on middle and lower side slopes of glacial uplands. Soils have
medium fertility, moderate permeability, and a severe hazard of erosion. Poses moderate
limitations for development due to slope.
Kegonsa Silt Loam;
KeB
26
Moderately deep, well-drained soils on benches on outwash plains. Soils have medium fertility,
moderate permeability, and a moderate hazard of erosion. Poses severe limitations for
development due to flooding and very low bearing capacity.
Batavia Silt Loam;
BbA, BbB
26
Deep, well-drained soils on high benches. Soils have high fertility, moderate permeability, and
a slight to moderate hazard of erosion. Poses slight to moderate limitations for development
due to low bearing capacity.
St. Charles Silt Loam;
ScB
7
Deep, well-drained and moderately well-drained soils on glaciated uplands. Soils have high
fertility, moderate permeability, and a moderate hazard of erosion. Poses slight to moderate
limitations for development due to low bearing capacity.
Dodge Silt Loam;
DnB
4
Deep, well-drained, gently sloping and sloping soils glaciated uplands. Soils have high fertility,
moderate permeability, and a moderate hazard of erosion. Poses moderate limitations for
development due to low bearing capacity and slope.
Radford Silt Loam;
RaA
4
Deep, somewhat poorly drained soils in low drainage ways and stream channels. Soils have
high fertility and moderate permeability, but are subject to flooding. Poses very severe
limitations for development due to seasonal high water table and very low bearing capacity.
Boyer Sandy Loam;
BoC2, BoD2
4
Well-drained soils on benches in valleys. Soils have low fertility, moderately rapid to rapid
permeability, and a severe hazard of erosion. Poses moderate to severe limitations for
development due to slope and instability.
Kidder;
KrD2
1
Deep, well-drained soils on glaciated uplands. Soils have medium fertility, moderate
permeability, and a very severe hazard of erosion. Poses severe limitations for development
due to slope.
Source: Dane County Soil Survey
8
Table 3
Soils Characteristics
Characteristic
Soil Classifications
% of Area
Prime Agricultural Soils
BbA, BbB, DnB, KeB, RaA, ScB
67
Hydric Soils
None
0
Soils with Hydric Inclusions
RaA
4
Soils Associated with Steep Slopes
BoD2, KrD2
2
Severe Limitations for Dwellings with
Basements
BoD2, KrD2, RaA
6
Source: Dane County Soil Survey
The Wisconsin State Historical Society reports that no previously recorded archaeological
site or cemeteries have been recorded for the amendment area, and investigations in the
vicinity did not result in the identification of any archaeological sites. As a result, the
Wisconsin Historical Society believes that an archaeological survey of the project area is not
necessary (see letter attached).
Land Use. The proposed amendment area is composed of lands in agricultural use and 9
existing residential parcels, seven of which are developed. The majority of the area had been
part of a working farm that was purchased by the Town of Middleton in 1999. The Town
has retained a portion of the farm as an educational farm park (Pope Farm Park), and sold
a portion to the MCPASD in 2005 for the school site.
Land uses adjacent to the proposed amendment are as follows:
North: Low density single-family residential (Town of Middleton)
South: Low density single-family residential (Town of Middleton)
Agriculture, church (City of Madison)
East: Residential (Blackhawk Neighborhood; Town of Middleton, City of Madison)
West: Pope Farm Park (Town of Middleton)
Existing Transportation System. The major roadways serving the proposed amendment
area are Old Sauk Road, an east-west minor arterial that is four lanes, but transitions
down to two lanes west of Cricket Lane; and Pleasant View Road, a north-south, two-lane
minor arterial. Blackhawk Road, an east-west local street, will also serve the area.
There are currently no regular Metro Transit fixed-routes serving the Blackhawk
Neighborhood. The nearest routes are those serving the Old Sauk Trails Office Park (about
1.5 miles east of the amendment area) Route 15, a downtown commuter route and Route
73, which connects the Middleton and West Transfer Points. The Madison Area
Transportation Planning Board’s Rideshare Etc. Program provides ride-matching services
for individuals interested in car-pooling or vanpooling. Dane County contracts with a
private provider, Transit Solutions, 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.
9
1100
1000
B
la
ck
Ea
h
rt
C
re
ek
1000
Blackston e Co
Rose Court
u rt
1100
1100
gW
d
y
ai l
rs T r
we
rS
er
e
an
et
1100
Cr
ic
tre
e
ay
B
ear
w
Cl a
W
0
White Fox Lane
1100
H e a th
ll L
Pioneer Road
1100
11
0
o
Kn
n Drive
Schewe Road
0
Bear C l aw
Wa
Tr a
Blue Aster Trail
He r o
lo
Twin Valley Road
e
pp
Blue
F
Cone
11
0
ive
f Dr
Shadow Ridge Trail
W Old Sauk Road
1100
n
ll e
Fa
L
ea
y Dr i v e
k et La n
d Sk
11
0
0
Re
W i nd
in
Sandhill R o a
ay
Blackhawk Road
Rivercrest Drive
0
11
Elderberry Road
0
Po int Trail
11
0
i n al
0
rd
Ca
1100
Map 4 Elevation
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Burke
2 Apr. 2009
100 Foot Interval
Proposed Urban Service Area Boundary
20 Foot Interval
Existing Urban Service Area Boundary
4 Foot Inverval
Incorporated Area
0
1000
Feet
Prepared by staff
of the CARPC.
u rt
Blackston e Co
Rose Court
Blackhawk Road
ScB
DnB
Sandhill R o a
MdC2
d
KrD2
BoC2
y
Wi
er
o
Kn
ll L
e
an
n Drive
n d ing Way
we
rS
tre
e
et
Cr
ic
KeB
ay
Schewe Road
RaA
B
Pioneer Road
W Old Sauk Road
Bear C l aw
Wa
ai l
rs T r
Shadow Ridge Trail
BbB
H e a th
BbA
e
pp
He r o
lo
BoD2
n
ll e
Fa
L
ea
Blue
ive
f Dr
F
Cone
Twin Valley Road
BbB
ri
d S k y D ve
Tr a
BoD2
Blue Aster Trail
Re
k et La n
ScB
ear
w
Cl a
W
White Fox Lane
Rivercrest Drive
Elderberry Road
rd
Ca
i n al
Po int Trail
Map 5 Soil Type
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Burke
2 Apr. 2009
Proposed Urban Service Area Boundary
0
1000
Existing Urban Service Area Boundary
Incorporated Area
Feet
Prepared by staff
of the CARPC.
u rt
Blackston e Co
Rose Court
gW
d
y
He r o
ll L
e
an
n Drive
ai l
rs T r
we
rS
et
ay
Schewe Road
Cr
ic
tre
e
B
Pioneer Road
er
o
Kn
Bear C l aw
Wa
e
pp
Blue
k et La n
Tr a
ive
f Dr
lo
Twin Valley Road
L
ea
y Dr i v e
Shadow Ridge Trail
W Old Sauk Road
H e a th
n
ll e
Fa
d Sk
F
Cone
Blue Aster Trail
Re
W i nd
in
Sandhill R o a
ay
Blackhawk Road
ear
w
Cl a
W
White Fox Lane
Rivercrest Drive
Elderberry Road
rd
Ca
i n al
Po int Trail
Map 6 Soil Limitations
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Middleton
2 Apr. 2009
Proposed Urban Service Area Boundary
Existing Urban Service Area Boundary
Incorporated Area
Prime Farmland (38.9 acres)
Severe Limitations to Development (3.2 acres)
0
1000
Feet
Prepared by staff
of the CARPC.
Blackstone Co
u rt
Rose Court
Blackhawk Road
T ra
L
ea
B lue
ive
f Dr
e
pp
ai l
rs T r
Wi
ne
k et La n
Cr
ic
Schewe Road
White Fox Lane
Fargo Trail
La
e
rS
t re
et
Pioneer Road
rK
t he
H ea
ll
no
n Drive
n d ing Way
we
Shadow Ridg e T rail
W Old Sauk Road
He r o
Fl o
Twin Valley Road
n
ll e
Fa
y D r ive
d Sk
C one
Blue Aster Trail
Re
Bear C la
w Wa
y
Sandhill R o ad
Rivercrest Drive
Elderberry Road
rd
Ca
ina l P
oint Trail
Map 6a Seasonal High Water Table Areas
5
3.
75
4.
5
2
3.
5
Min. Depth to Water Table (ft)
0
Amendment to the
Central Urban Service
Area in the
City of Madison and
the Town of Middleton
24 Mar. 2009
0
1,000
Feet
Prepared by staff
of the CARPC.
Bicycle travel is currently accommodated through shared use of roadways with motor
vehicles. Old Sauk Road has bicycle lanes east of Cricket Lane where it is four lanes.
Pleasant View Road has an extra wide paved shoulder to accommodate bicyclists from
Mineral Point Road to Old Sauk Road, but north of Old Sauk it is designated as least
suitable for bicyclists. There is a sidewalk on the north developed side of Old Sauk Road
east of Trapper’s Trail. All of the local streets within the Blackhawk Neighborhood have
sidewalks.
4. Consistency or Conflict With Adopted Plans and Policies
The proposed amendment is consistent with the Blackhawk Neighborhood Development
Plan, as amended by the Madison Common Council August 1, 2006; and consistent with
the City of Madison-Town of Middleton Cooperative Plan, adopted in 2006, which calls for all
of the amendment area to be transferred to the City of Madison jurisdiction in 2042, if not
voluntarily attached prior to that time (see Map 7).
The amendment lies south of the Black Earth Creek Natural Resource Area Boundary as
shown in the Dane County Park and Open Space Plan.
The development of an elementary school in the amendment area supports the CARPC goal
of promoting balanced communities. The planned elementary school serves the needs of
existing and future residents and supports the following Neighborhood Development
objectives of the CARPC:
x
x
x
x
Providing a walkable destination for the neighborhood.
Promoting development, which complements and reinforces the existing and
planned neighborhoods.
Increasing and improving pedestrian and bicycle transportation within the
community.
Providing development (school) that compliments and supports cultural and
historical resources (Pope Farm Park).
Although attendance boundaries have not yet been determined, the location of the new
school in relation to the existing and anticipated school population is anticipated to provide
elementary students in the area with shorter distances to school and closer identification
with a school “neighborhood.” Although some students attending the proposed school will
likely be transported from beyond the immediate neighborhood, pedestrian and bicycle
facilities proposed for the area will provide pedestrian and bicycle access for students in the
adjacent Blackhawk Neighborhood and the nearby Elderberry Neighborhood (MCPASD
policy provides bus service for students living beyond 1.1 miles from their assigned school
or across hazardous roads).
The proposed elementary school includes several design features in keeping with the
CARPC goal of supporting sustainability. According to the MCPASD website, the new school
will include geothermal heating and cooling; energy efficient windows, walls and roofs; low
energy lighting; and other energy efficient features. The MCPASD Board of Education has
made the decision that sustainable features and systems that would qualify the facility for
LEED certification will be incorporated into the proposed new school, although the Board
has chosen not to pursue the LEED certification process at this time.
14
Approximately 67 percent (39 acres) of the amendment area is composed of prime
agricultural soils, and 40 acres will be removed from farming. In 1999, the amendment
area was part of a hobby farm in the Town of Middleton owned by the Pope family. At that
time, the family sold the 145-acre farm to the Town to provide an educational farm park
designed to share the agricultural and natural history of the area with the public, and
particularly with school children. At the time of the purchase, the Town designated 105
acres for Pope Farm Park, and reserved the 40 acres adjacent to the City of Madison and
Blackhawk subdivision for possible future sale. The park property includes interpretive
signs and hiking trails, and is partially farmed in varying crops to demonstrate the
historical agriculture of the area. In 2005, the Town of Middleton sold the surplus 40 acres
to the Middleton-Cross Plains Area School District for a school site. The anticipated future
relationship between the school and the educational park may be viewed as indirectly
providing a benefit to agriculture by providing the opportunity for students to learn about
agriculture and the agricultural and natural history of the area. The Town views the school
use as complementary to the purpose of the park, and as a valuable buffer between the
Blackhawk Neighborhood in the City of Madison and the park and agricultural areas of the
town.
The portion of the amendment proposed for new low density residential development
(approximately 3.5 units per acre) is consistent with the Blackhawk Neighborhood Plan. The
scale and density of the new lots are intended to fit in with the adjacent lots to the rear of
the new residential lots, which are developed with relatively large homes at low densities.
According to the Blackhawk Neighborhood Plan, the neighborhood as a whole includes a
range of housing types including medium density areas with almost 16 units per acre and
low density areas with larger lots to preserve trees and natural features. The residential
density identified in the plan for the neighborhood as a whole is approximately 4.4 units
per acre. (Residential density for CUSA as a whole is 6.6 units per acre.) The nine large
single family residential lots that currently exist in the amendment area, and remain in the
Town of Middleton, decrease the overall density within the amendment area to one unit per
acre. Although the City notes that it is possible that these lots will be subdivided or built to
higher densities in the future, the City is not proposing higher densities for those existing
parcels at this time.
The addition of 40.0 developable acres proposed in the current amendment is well within
the CARPC forecast of 2030 land demand for the CUSA. In late 2008, the Wisconsin
Department of Administration (DOA) released updated population projections for Dane
County. Preliminary calculations of land demand based on the new forecast indicate that,
following WisDNR approval of the addition in the Pumpkin Hollow neighborhood (approved
by CARPC March 12, 2009), the Central Urban Service Area will require an additional
2,311.6 developable acres to accommodate the 2030 population. CARPC staff is working on
new methodologies to improve the analysis of need for acreage to meet future land demand
in urban service areas by refining land demand calculations and incorporating input from
individual communities in quantifying existing developable land.
The proposed amendment is a logical expansion of the CUSA. It is adjacent to the existing
urban service area to the east and south, with access to urban services from these adjacent
areas.
15
Blackhawk Neighborhood Development Plan
As Adopted March 1994, Amended August 2006 and *implemented through subdivision and zoning approvals
Blackhawk Road
Swallo
Pleasant View Road
wtail Dr
Sandhill Rd
Future
School
Site
Set
tler
s
Winding Way
Rd
.
Park
Park
Park
Church
Electric
substation
MAP 7
Existing Land Use* and Proposed
Land Use on Vacant NDP Land
ark
Low Density Res.
Park
Institutional
Low-Med. Density Res.
Med. Density Res.
Last Update of NDP file: July 2007
M:\arc\avdata\c_plan\community based info\ndp to print current\Blackhawk_letter.mxd
Park, Drainage
and Open Space
0
Feet
500
1,000
City of Madison Department of Planning & Community & Economic Development, Planning Division
MAP 8
The amendment area is centrally located in the Middleton-Cross Plains Area School District
attendance area and was selected by the district as a new school site because it is adjacent
to the Blackhawk and Elderberry neighborhoods. The Elderberry neighborhood, located
immediately south of the amendment area (bounded by Old Sauk Road on the north,
Mineral Point Road on the south, Pleasant View Road on the east, and Pioneer Road on the
west) is one of two areas identified as a major growth area for the district over the next
several years. Elementary students residing in the Blackhawk neighborhood are currently
split between Sunset Ridge Elementary School (approximately three miles to the north in
the Town of Middleton), and Sauk Trail Elementary School (approximately three miles
northeast, in the City of Middleton). (See Map 8 on previous page.)
5. Proposed Urban Services
Public Water System. Water service to the proposed amendment area will be provided by
the Madison Water Utility through extensions of the existing 12-inch water main in River
Birch Road, the 8-inch water main in Shadow Ridge Trail, and the 12-inch water main in
Old Sauk Road, all to the east of the amendment area.
The current capacity of the City of Madison water system is 68 million gallons per day, with
an average demand of 32 million gallons per day. Peak water demand in 2008 was 45
million gallons per day. Water services are adequate for fire fighting services, and can
provide 2,000 gallons per minute for 2.5 hours. The Blackhawk booster pumping station,
with a capacity of 2,800 gallons per minute, currently serves the western portion of the
Blackhawk Neighborhood, and will serve the amendment area. The system includes fire
hydrants.
Ultimately, western portions of the Blackhawk Neighborhood, and additional lands to the
south in the Elderberry Neighborhood, will be served by a new water tower to be
constructed on a property owned by the Water Utility near the intersection of West Old
Sauk Road and Pioneer Road. This new water tower is planned for construction by 2015.
The existing Blackhawk booster pump station would be used to fill the tower and
supplement water pressures as needed.
Wastewater. The proposed amendment area, with the exception of the northern portion
nearest Blackhawk Road, will be served by the extension of the existing gravity sanitary
mains located in River Birch Road and Silver Sage Trail.
There is ample capacity in the City collection system to serve the school complex and the
expected development in the amendment area.
The Madison Metropolitan Sewerage District (MMSD) will provide wastewater treatment for
the amendment area. This area ultimately connects the MMSD West Interceptor – Esser
Pond Extension. Service capacity in this interceptor is currently adequate to accommodate
the development proposed for the amendment area. The Nine Springs Treatment Facility
has a capacity of 50 million gallons per day (mgd), and is expected to reach capacity by
2020 depending on growth rate assumptions. The MMSD is completing a long-range plan
that evaluates various options for expanded treatment capacity to serve its current and
future service area.
Stormwater Management System. Several ridgelines bisect the Blackhawk Neighborhood
and amendment area and establish a general division of stormwater drainage. Most of the
proposed amendment area will drain to lower elevations near West Old Sauk Road. The
18
area drains to an existing 54-inch stormwater sewer in Fallen Leaf Drive. This storm sewer
flows eastward to an existing regional stormwater detention basin of approximately 12.5
acres on Bear Claw Way. The regional system maintains pre-development runoff peaks for
all storms including the 100-year event. Discharge from the regional stormwater facility is
to a greenway environmental corridor which conveys flows to the South Fork Pheasant
Branch.
Within the amendment area, a new stormwater detention facility is proposed just south of
the planned westward extension of Shadow Ridge Trail and east of the planned north-south
local street (see Maps 3b and 3c). This facility will drain to the 54-inch storm sewer in
Fallen Leaf Drive, as described above. This facility will be built by the property developer
and then dedicated to the City of Madison and maintained by the City. The engineers
preparing the school site plans indicate that it is intended to achieve substantial on-site
stormwater infiltration from the school site, other development, and roadways by utilizing
rain gardens, bioretention, and other techniques, with sediment removal and detention
occurring in the pond. Detailed planning for the school site is still in progress and will need
to address on-site opportunities for infiltration as the plans are developed more fully.
Stormwater management will meet all applicable City of Madison, Dane County and State
of Wisconsin standards.
Environmental Corridors. The amendment proposal includes 2.9 acres of Environmental
Corridors for stormwater facilities.
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. Lands not currently in the City of Madison will continue to receive services from the
Dane County Sheriff Department.
The City currently has 438 full-time equivalent police officers, or about 1.93 officers per
1,000 residents, well within the CARPC guideline of one officer 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 proposed
amendment is served from the West District Police Station located at 1710 McKenna
Boulevard, approximately six miles from the amendment area.
The City of Madison Fire Department provides fire protection and emergency medical
services for the City of Madison, and will serve those areas within the amendment area
within the City. Three Madison fire stations serving the amendment area are Fire Station
No. 2, located at 421 Grand Canyon Drive, Fire Station No. 9 located at 201 N. Midvale
Boulevard, and Fire Station No. 7 located at 1810 McKenna Boulevard. Response time to
the amendment area is estimated to be approximately 6 to 8 minutes. The City of Madison
has an ISO fire rating of three, well within CARPC fire protection guidelines.
A new Madison Fire Station is being constructed at 400 South Point Road, scheduled to be
completed in late summer or early fall of 2009. This facility will become the primary fire
station for this area, reducing the estimated response time to 4 to 6 minutes.
Lands within the Town of Middleton will continue to receive public safety services through
the Town. Fire protection is provided by the Middleton Fire District, a paid on-call
department serving the City of Middleton, Town of Middleton, Town of Westport and Town
19
of Springfield. Fire Station 2 is located in the Town of Middleton. EMS service is provided by
the City of Middleton EMS, located on Parmenter Street in the City of Middleton. Police
services are provided by the Dane County Sheriff’s Office from the West Precinct at 7555 W.
Old Sauk Road.
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 currently in the City of Madison will
continue to receive services from the Town of Middleton.
School and Park Facilities. The amendment area is within the Middleton-Cross Plains
Area School District and is planned as a school site to serve the district. MCPASD has seen
over 20 percent growth in enrollment over the last ten years, the fourth highest growth rate
among the 15 suburban Dane County school districts. MCPASD currently has six
elementary schools, two middle schools, one high school and an alternative high school,
and is facing significant overcrowding issues, particularly at the elementary and middle
school levels.
The amendment area includes no additional public parkland. The residents of the area will
be served by Blackhawk Park, a 16-acre park located approximately one-half mile east of
the amendment area. Residents may also use recreational fields and play equipment on the
school site during non-school hours. The adjacent Pope Farm Park provides passive
recreational opportunities.
Urban Transportation System. The neighborhood plan proposes a new north-south street
through the amendment area connecting Old Sauk Road and Blackhawk Road. Schewe
Road is planned to be realigned to connect directly with this new street at the intersection
with Old Sauk Road. In addition, two local streets—Shadow Ridge Trail and River Birch
Road—will be extended west connecting to this new north-south street providing direct
access to the amendment area from the neighborhood. All of these streets will include
sidewalks. A north-south off-street bicycle/pedestrian path through the amendment area is
planned as recommended in the Regional Transportation Plan 2030. This path is planned to
continue south through other planned neighborhoods, generally following a planned
stormwater greenway.
6. Impacts or Effects of Proposal
Surface Water Impacts. Unless effective mitigation measures are used, the potential
impacts of urban development on receiving water bodies are to increase stormwater runoff
rates and volumes causing hydrologic changes in receiving streams, reduce groundwater
recharge and stream base flow, and introduce additional contaminants into the receiving
bodies of water. This occurs from the expansion of impervious surfaces (i.e., streets,
parking areas, and roofs). Development can also cause substantial soil erosion and off-site
siltation from construction activities.
Stormwater from the impervious area associated with the school site and residential
development to the east will flow south and southeast to a wet detention basin that will flow
through several regional facilities in the cities of Madison and Middleton, ultimately
discharging to Pheasant Branch Creek, and eventually to Lake Mendota. Increased runoff
20
rates and volumes, if not managed and mitigated, can result in increased streambed and
bank erosion. The increased runoff volume can also worsen the flooding in the Yahara
watershed.
The applicant proposes to mitigate the urban non-point source impacts of the proposal as
follows:
1. The City of Madison Erosion and Stormwater Runoff Control Ordinance requirements
will provide 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 and with aggressive enforcement during building construction.
2. The City of Madison Erosion and Stormwater Runoff Control Ordinance requirements
will provide post-construction sediment control (reduce total suspended solids leaving
the site by 80%) for the average annual rainfall with the installation of wet detention
ponds and/or similar best management practices to be designed during detailed
development planning and detailed stormwater management planning.
3. The City of Madison Erosion and Stormwater Runoff Control Ordinance requirements
will provide post-construction peak runoff rate control (maintain predevelopment peak
runoff rates) for the 1, 2, 5, and 10-year, 24-hour storms with the installation of
retention and detention areas and/or other best management practices to be designed
during detailed development planning and stormwater management planning.
4. The stormwater management plan proposes to maximize infiltration to the extent
possible with the installation of rain gardens and other best management practices to
be designed during detailed development planning and detailed stormwater
management planning. At a minimum, the City of Madison Erosion and Stormwater
Runoff Control Ordinance requires post-development infiltration of at least 90% of predevelopment infiltration volumes in residential areas and 60% in commercial areas or
meeting the estimate average annual recharge rate of 7.6 inches per year.
5. RPC conditions associated with previous USA amendments have resulted in the
construction of regional stormwater facilities in the Badger Mill Creek and Pheasant
Branch watersheds controlling post-development peak stormwater flows to predevelopment peaks for all storms including the 100-year event. These facilities will
control peak runoff from the proposed amendment area, except the portion with
existing development draining to the Black Earth Creek.
6. The school site development proposal includes low impact practices with the goal of
maximizing infiltration beyond minimum standards, and with the goal of maintaining
pre-development discharge volume in addition to peak control.
The proposed stormwater management plan does not detain storm events larger than the
10-year, 24-hour storm in the Black Earth Creek watershed. However, this area is already
developed in the town, and the portion in the City of Madison is planned to remain in open
space and to maximize infiltration. Because increased peak flow rate and volume of runoff
for larger storm events in developed areas can cause adverse hydrologic impacts on
receiving streams, it is important to maintain pre-development volumes of runoff if the area
is redeveloped with higher density. Energy dissipaters, level spreaders, and stable outlets
will also be needed for the overflow to prevent erosion and channelization which can result
from concentrating pre-development overland flow regimes.
21
Transportation System Impacts. The proposed amendment is intended for a new
elementary school and potentially a future middle school operated by the Middleton-Cross
Plains School District. In addition, an estimated 21 single-family dwelling units are planned
within the area. When fully developed, the elementary school and residential development
could be expected to generate approximately 1,000 one-way vehicle trips on an average
weekday. If a middle school is built, it would add another 1,400 one-way vehicle trips.
In 2006, the average weekday traffic (AWT) volume on Old Sauk Road west of Pleasant View
Road was 9,200. The 2006 AWT volume on Pleasant View Road was 10,950 north and
6,700 south of Old Sauk Road. Blackhawk Road had a 2006 AWT volume of 1,800 west of
Pleasant View Road.
There is sufficient roadway capacity to handle the expected traffic from the proposed
amendment. A minor improvement to the intersection of Old Sauk Road and the new northsouth street may be necessary.
School System Impacts. The amendment proposal adds an estimated nine students to the
Middleton School District. The proposal also allows for the development of a new
elementary school in the near term and a potential middle school in the future. The area is
currently within the attendance area for Sauk Trail Elementary School, Kromrey Middle
School and Middleton High School. All of these schools are currently over capacity. (Four of
the five other district elementary schools and the second middle school are also over
capacity.) Middleton has experienced 20.4 percent growth over the last 10 years, the fourth
highest growth rate among the 15 suburban school districts in Dane County. Construction
of a new elementary school in the amendment area would ease district-wide overcrowding
at the elementary level and elementary students residing in the amendment area will likely
be assigned to the new elementary school. Bus service would be provided to the assigned
middle school and Middleton High School.
7. Alternatives
The majority of the amendment area is within the City of Madison and owned by MCPASD.
The proposed school site is centrally located in the Middleton-Cross Plains Area School
District attendance area and was selected by the district as the most desirable location for
a new school because of the proximity to the Blackhawk and Elderberry neighborhoods.
The Elderberry Neighborhood is one of two areas identified as a major growth area for the
district over the next several years. Elementary students residing in the Blackhawk
neighborhood are currently split between Sunset Ridge Elementary School (approximately
three miles to the north in the Town of Middleton), and Sauk Trail Elementary School
(approximately three miles northeast, in the City of Middleton). The proposal for the
amendment area includes bicycle and pedestrian connections to the east (Blackhawk
neighborhood) and south (Elderberry neighborhood), providing off-street routes for students
traveling to the schools.
8. Controversies, Comments Received, Unresolved Issues
A public hearing before the Capital Area Regional Planning Commission is scheduled for
April 9, 2009. No comments have been received and no controversies are noted.
22
9. Conclusions and Staff Recommendation
The proposed amendment is for a school complex and some additional residential
development. It is located to allow some of the students who live nearby to be able to walk
or bike to school. It is being designed with LEED standards and low impact development
stormwater measures. A portion of the land will be used for residential development
consistent with the adjacent Blackhawk neighborhood. The amendment area also includes
nine existing residential lots on its northern and southern edges. These are large lots which
were developed with septic systems in the town, and are being included in case there is a
need for sanitary sewer in the future.
The amendment area includes an area (3.2 acres) of soils with hydric inclusions and steep
slopes. These areas have a limited suitability for development due to their high water table
or steep slopes. The proposed buildings are not located within these areas. No other
environmentally sensitive area requiring inclusion in environmental corridors were
identified in the area.
The impacts of the proposed development have been addressed through proposed
infiltration measures and existing and planned stormwater management facilities which
serve this area. It is advisable in general for the area to maintain pre-development runoff
volumes as well as peaks. In the portion of the amendment area located in the Black Earth
Creek watershed, it is important to maintain pre-development volumes and peaks for any
future redevelopment of the existing residential lots.
Staff recommends approval of the amendment based on the proposed land uses and
services and conditioned 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:
x
Install stormwater practices for each area prior to other land disturbing activities.
x
Control peak rates of runoff for all storms up to and including the 10-year 24-hour
event to predevelopment levels.
x
Demonstrate that runoff from storm event larger than the 10-year 24-hour event
will not cause erosive velocities or increase downstream flooding.
x
Maximize the infiltration of rainfall to maintain pre-development runoff volumes to
the extent practicable and protect infiltration areas from compaction and
sedimentation. This is especially critical in the small area of existing residential
development which is in the Black Earth Creek watershed.
x
Provide deep tilling in all open space areas.
x
Prevent increased erosion.
x
Provide stormwater quality ponds for all developed areas within the amendment
area.
x
Stormwater practices should be publicly managed, or have a perpetual legal
maintenance agreement finalized with the City.
23
23 March 2009
K. Mesbah
Community Analysis and Planning Division
City-County Building, Room 362
210 Martin Luther King Jr. Boulevard
Madison, WI 53703-2558
RE: Amending the Dane County Land Use and Transportation Plan and the Dane County Water Quality Plan by
Revising the Central Urban Service Area Boundary and Environmental Corridors in the City of Madison and the
Town of Middleton.
Dear Mr. Mesbah:
No previously recorded archaeological site or cemeteries have been recorded for the project area. Archaeological
investigations in the vicinity did not result in the identifications of any archaeological sites. As a result, considering
the location of the parcel adjacent to these areas, we do not believe that an archaeological survey of the project area
needs to be completed.
Under Wisconsin law, Native American burial mounds, unmarked burials, and all marked and unmarked cemeteries
are protected from intentional disturbance. If anyone suspects that a Native American burial mound or an unmarked
or marked burial is present in an area, the Wisconsin Historical Society should be notified. If human bone is
unearthed during any phase of a project, all work must cease, and the Wisconsin Historical Society must be
contacted at 1-800-342-7834 to be in compliance with Wis. Stat. 157.70 which provides for the protection of all
human burial sites. Work cannot resume until the Burial Sites Preservation Office gives permission. If you
have any questions concerning the law, please contact Mr. Chip Brown, 608-164-6508.
If you have any questions, or if you need additional information, please feel free to contact me.
Sincerely;
John H. Broihahn
State Archaeologist
State Archaeology and Maritime Preservation
608-264-6496
[email protected]
(asi searches/Dane/ City of Madison_Town of Middleton)
DRAFT Resolution CARPC No. 2009-7
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 Middleton
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 March 2009;
and
WHEREAS, the City of Madison has requested an addition to the Central Urban Service
Area, and has based the request in part on the Blackhawk Neighborhood Development Plan,
adopted in August 2006, and the City of Madison Comprehensive Plan, adopted in January
2006; 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:
April 9, 2009
Date Adopted
Jeff Miller, Chairperson