Plan-Commission-Meeting-Agenda-Packet-9-3-2026.pdf

FRANKLIN CITY HALL CHAMBERS 9229 W. LOOMIS ROAD FRANKLIN, WISCONSIN PLAN COMMISSION MEETING AGENDA Thursday, September 3, 2026 at 6:00 P.M. A. Call to Order and Roll Call B. Approval of Minutes 1. Approval of the regular meeting of August 20, 2026. C. Public Hearing Business Matters. None. D. Citizen comment period. Citizens may comment upon the Business Matter items set forth on this Meeting Agenda. E. Business Matters 1. Midland Commercial Development , C ertified Survey Map . Request to recommend approval of a Certified Survey Map to create two commercial lots upon property located at 7765 S Lovers Lane Road (Tax Key No. 795 9001 000). 2. Comprehensive Master Plan Update. Draft for Plan Commission recommendation pursuant to Wisconsin Statutes § 66.1001(4)(b). F. Adjournment The YouTube channel “City of Franklin WI” will live stream the Plan Commission meeting so the public can watch and listen to it at https://www.youtube.com/c/CityofFranklinWIGov. Any questions on this agenda may be directed to the Department of City Development’s office at 414-425-4024, Monday through Friday, 8 AM – 4:30 PM. *Supporting documentation and details of these agenda items are available at City Hall during regular business hours. **Notice is given that a majority of the Common Council may attend this meeting to gather information about an agenda item over which they have decision-making responsibility. This may constitute a meeting of the Common Council per State ex rel. Badke v. Greendale Village Board, even though the Common Council will not take formal action at this meeting. [Note: Upon reasonable notice, efforts will be made to accommodate the needs of disabled individuals through appropriate aids and services. For additional information, contact the City Clerk’s office at 414- 425-7500.] REMINDERS: Next Regular Plan Commission Meeting: September 17, 2026. City of Franklin unapproved Plan Commission Meeting August 20, 2026 Minutes A. Call to Order and Roll Call Mayor John Nelson called the August 20, 2026, Plan Commission meeting to order at 6:00 p.m. in the Council Chambers at Franklin City Hall, 9229 West Loomis Road, Franklin, Wisconsin. Present were Mayor John Nelson, Alderman Nabil Salous, Alderwoman Michelle Eichmann and Commissioners Kevin Haley, Michael Shawgo, Rebecca Specht and Patrick Leon. Also present were City Attorney Jesse Wesolowski, City Attorney Christina Lucchesi, Planning Manager Régulo Mart ínez, Associate Planner Luke Hamill , Director of Administration Kelly Hersh , Alderwoman Mira Kresovic and Alderwoman Danelle Kenney. B. Approval of Minutes – Regular Meeting of July 23, 2026. Member Salous moved and Member Eichmann seconded a motion to approve the meeting minutes. On voice vote, all voted ‘aye’; motion carried (6-0-0). C. Public Hearing Business Matters 1. 5100, LLC, Conditional Use. Request for approval of a Conditional Use for a Self- Service Storage Facility, upon property located at 5160 W. Ryan Road (TKN 882 9002 000). Associate Planner Hamill presented the Conditional Use request. The Official Notice of Public Hearing was read into the record by Associate Planner Hamill and the public hearing opened at 6:06 pm and closed at 6:10 pm. Commissioner Leon moved and Alderwoman Eichmann seconded a motion to recommend approval of a resolution imposing conditions and restrictions for the approval of a Conditional Use for a self-service storage facility upon property located at 5160 W Ryan Road (Tax Key No. 882 9002 000). On roll call vote, all voted ‘aye’; motion carried (6-0- 0). D. Citizen comment period. Citizens may comment upon the Business Matter items set forth on this meeting agenda. The citizen comment period opened at 6:18 p.m. and closed at 6:18 p.m. E. Business Matters 1. Proclamation for Doric Chapter – DeMolay International. Mayor Nelson presented the proclamation to Doric Chapter – DeMolay International. No action required. 2. Club Car Wash, Conditional Use. Request to allow a car wash business use upon properties located at 6311 S. 27th Street (TKN 714 9973 000), 2723 W. College Avenue (TKN 714 9969 001), 2729 W. College Avenue (TKN 714 9970 001), 2807 W. College Avenue TKN 714 9971 000), and 2821 W. College Avenue (714 9973 001). [The Plan Commission held a public hearing for this item on July 9; the Plan Commission tabled it until the applicant submits a sound study. The applicant submitted a sound study dated August 3, which is attached to the meeting packet]. Planning Manager Martínez presented the Conditional Use request. Commissioner Leon moved and Alderman Salous seconded a motion to recommend approval of a Resolution imposing conditions and restrictions for the approval of a Conditional Use for a car wash business use upon property located at approximately 6311 S. 27th Street. On voice vote, all voted ‘aye’; motion carried (6-0-0). 3. Storage Mart, Building Elevations. Review of proposed building elevations and building materials for the Storage Mart self-storage development located at 7045 S. Lovers Lane Road (TKN 747 9992 005). [Site Plan previously approved by Plan Commission Resolution 2024-006]. Planning Manager Martínez presented the Building Elevations request. Commissioner Leon moved and Commissioner Specht seconded a motion to approve the proposed building elevations for the Storage Mart development located at 7045 S. Lovers Lane Road. On voice vote, all voted ‘aye’; motion carried (6-0-0). 4. Staff Announcement. Comprehensive Plan update scheduled for next meeting on September 3, 2026. No action taken. 5. Advenir Azora Development, Site Plan. Correction to Resolution No. 2026-011, approving a site plan for the development of a one hundred and sixty-six unit housing development, resident community center, and related facilities, parking, landscaping and stormwater management, upon property located at 7705, 7631, 7721 S 31st Street. Planning Manager Martínez presented the request. Commissioner Leon moved and Alderwoman Eichmann seconded a motion to correct Resolution 2026-011 approving a Site Plan for the development of a one hundred and sixty- six unit housing development, resident community center, and related facilities upon property located at 7705, 7631, 7721 S. 31 st Street with content as stated in Resolution provided. On voice vote, all voted ‘aye’; motion carried (6-0-0). F. Adjournment Commissioner Haley moved and Commissioner Specht seconded to adjourn the meeting at 6:36 pm. On voice vote, all voted ‘aye’; motion carried (6-0-0). 1 CITY OF FRANKLIN REPORT TO THE PLAN COMMISSION Meeting of September 3, 2026 Certified Survey Map RECOMMENDATION: City Development Staff recommends approval of this Certified Survey Map to create two commercial lots, subject to the conditions set forth in this report and the attached resolution. Project name: Midland Commercial Development – Two lot Certified Survey Map Property Owner: Midland Commercial Development Corp. Applicant: Steve Rolfe, Midland Commercial Development Corp. Agent: Paul Imig, PE, The Sigma Group Property Address/TKN: 7765 S Lovers Lane Road / 795 9001 000 Aldermanic District: District 2 Zoning District: B-R – Regional Business District Staff Planner: Luke Hamill, Associate Planner Please note: • Recommendations are underlined, in italics and are included in the draft resolution. • Suggestions are only underlined and are not included in the draft resolution. Project Description/Analysis The applicant is seeking approval of a Certified Survey Map (CSM) for the creation of two commercial lots on Highway 100. The total site is 4.16 acres. The site currently has the still under construction Aldi grocery store on the south side of the site. Lot 1 will include the current Aldi development, while Lot 2 is reserved for a future development. The applicant has provided Site Intensity and Capacity Calculations for both proposed lots. Both lots maintain compliance with the Bulk and Dimensional Standards set by the Unified Development Ordinance. The subject site is zoned B-R. Both lots will be served by public sanitary sewer and public water supply. The access to lot 2 will be provided by the cross access between the Aldi and the Speedway site to the north, as DOT likely would not allow for access to Lovers Lane from Lot 2. The site abuts the same B-R zoning district to the east and north, R-MF Multi-Family to the south and west. In order to approve the CSM, the Plan Commission and Common Council must find that the proposed land division meets the requirements for a CSM as provided in the Unified Development Ordinance, including all standards for development as provided in the following sections of the UDO: • Division 15-9-13 Minor Land Division • Division 15-8 Subdivision Standards • Division 15-8.0100 Required Improvements for Land Divisions • Division 15-8.0200 Construction Item E.1. 2 Staff Recommendation City Development Staff recommends approval of this Certified Survey Map to create two commercial lots, subject to the conditions set forth in this report and the attached resolution. Pursuant to Wisconsin Statutes 236.34(1m)(f), the approval authority shall take action within 90 days of submittal unless the time is extended by agreement with the subdivider. This application was submitted on July 23, 2026; therefore, the Common Council shall take action before October 21, 2026. STATE OF WISCONSIN CITY OF FRANKLIN MILWAUKEE COUNTY Draft 08-25-2026 RESOLUTION NO. 2026-_____ A RESOLUTION CONDITIONALLY APPROVING A TWO-LOT CERTIFIED SURVEY MAP, A REDIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THE SOUTHEAST ¼ AND NORTHEAST ¼ OF THE SOUTHWEST ¼ OF SECTION 8, TOWN 5 NORTH, RANGE 21 EAST, CITY OF FRANKLIN, MILWAUKEE COUNTY, WISCONSIN (MIDLAND COMMERCIAL DEVELOPMENT CORP., PROPERTY OWNER) (7765 S LOVERS LANE ROAD) WHEREAS, the City of Franklin, Wisconsin, having received an application for approval of a certified survey map, such map being a redivision of A part of Lot 2 of Certified Survey Map No. 9716, being a part of the Southeast ¼ and Northeast ¼ of the Southwest ¼ of Section 8, Town 5 North, Range 21 East, in the City of Franklin, Milwaukee County, Wisconsin. WHEREAS, the Common Council having reviewed such application and Plan Commission recommendation and the Common Council having determined that such proposed certified survey map is appropriate for approval pursuant to law upon certain conditions. NOW, THEREFORE, BE IT RESOLVED, by the Mayor and Common Council of the City of Franklin, Wisconsin, that the Certified Survey M ap submitted by Midland Commercial Development Corp., as described above, be and the same is hereby approved, subject to the following conditions: 1. That any and all objections made and corrections required by the City of Franklin, by Milwaukee County, and by any and all reviewing agencies, shall be satisfied and made by the applicant, prior to recording. 2. That all land development and building construction permitted or resulting under this Resolution shall be subject to impact fees imposed pursuant to §92- 9 of the Municipal Code or development fees imposed pursuant to §15- 8-10 of the Unified Development Ordinance, both such provisions being applicable to the development and building permitted or resulting hereunder as it occurs from time to time, as such Code and Ordinance provisions may be amended from time to time. 3. Each and any easement shown on the Certified Survey Map shall be the subject of separate written grant of easement instrument, in such form as provided within the City of Franklin Design Standards and Construction Specifications and such form and content as may otherwise be reasonably required by the City Engineer or designee to further and secure the purpose of the easement, and all being subject to the approval of the Common Council, prior to the recording of the Certified Survey Map. MIDLAND COMMERCIAL DEVELOPMENT CORP. – CERTIFIED SURVEY MAP RESOLUTION NO. 2026-_____ Page 2 4. Midland Commercial Development Corp., successors and assigns , and any developer of the Midland Commercial Development Corp. two (2) lot certified survey map project, shall pay to the City of Franklin the amount of all development compliance, inspection and review fees incurred by the City of Franklin, including fees of consults to the City of Franklin, within 30 days of invoice for same. Any violation of this provision shall be a violation of the Unified Development Ordinance, and subject to §15-9-14 thereof and §1- 19 of the Municipal Code, the general penalties and remedies provisions, as amended from time to time. 5. The approval granted hereunder is conditional upon Midland Commercial Development Corp. and the two (2) lot certified survey map project for the propert y located at 7765 S Lovers Lane Road : (i) being in compliance with all applicable governmental laws, statutes, rules, codes, orders and ordinances; and (ii) obtaining all other governmental approvals, permits, licenses and the like, required for and applicable to the project to be developed and as presented for this approval. 6. The applicant must resolve any technical corrections required by the Engineering or Planning Department, or the City Attorney’s Office prior to the recording of the C ertified Survey Map. BE IT FURTHER RESOLVED, that the Certified Survey Map, certified by owner, Midland Commercial Development Corp., be and the same is hereby rejected without final approval and without any further action of the Common Counci l, if any one, or more than one of the above conditions is or are not met and satisfied within 180 days from the date of adoption of this Resolution. BE IT FINALLY RESOLVED, that upon the satisfaction of the above conditions within 180 days of the date of adoption of this Resolution, same constituting final approval, and pursuant to all applicable statutes and ordinances and lawful requirements and procedures for the recording of a certified survey map, the City Clerk is hereby directed to obtain the recording of the Certified Survey Map, certified by owner, Midland Commercial Development Corp., with the Office of the Register of Deeds for Milwaukee County. Introduced at a regular meeting of the Common Council of the City of Franklin this 15th day of September, 2026. Passed and adopted at a regular meeting of the Common Council of the City of Franklin this 15th day of September, 2026. MIDLAND COMMERCIAL DEVELOPMENT CORP. – CERTIFIED SURVEY MAP RESOLUTION NO. 2026-_____ Page 3 APPROVED: _________________________________ John R. Nelson, Mayor ATTEST: ___________________________________ Shirley J. Roberts, City Clerk AYES ______ NOES ______ ABSENT ______ 1 Comments 1. Please revise the CSM to have the correct Site Address of 7765 S Lovers Lane Road instead of 10001 W Church Street. Corrected 2. Please revise the building setback lines to account for the silo lot line adjustment. Corrected 3. Page 2 does not depict the new lot and seems like it is from the previous CSM approval. Please revise. Corrected Engineering Department Comments 1. CSM should depict the new watermain easement for the Aldi store. Engineering cannot approve until this is shown. Water main easement has been added, references separate document which I believe had been prepped but might not have been approved/recorded. Milwaukee County Register of Deeds Comments General: • The tax key number listed may be outdated. Corrected • Please verify the ownership name is correct. The name of the current owner of record is slightly different from that on the CSM sent. Megna Living Trust is no longer an Owner, owner is correct as shown Page 1: • Missing a distance and overstrikes on bearings/distances are present. Please clean up before recording. Corrected • The south line of this prelim CSM is different from that of CSM 9716 Lot 2 as recorded. Only difference is the pending deeding off of the silo to the adjacent property which will be completed before this CSM is recorded. Page 2: • Proposed lot 1 and lot 2 of this prelim CSM are not shown on this page. Corrected. Page 3: • In the legal description here, "Lot 1" appears to be in error. Corrected • If the exterior boundaries are correct on page 1 of this prelim CSM, this legal description is in error and will need to be modified. Revised to be a meets and bounds to address the deeding off a portion of the lot. BEING A RE-DIVISION OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THE SOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH, RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY , WISCONSIN. Project Narrative As owner of the property, we are dividing the 5-acre property to divide the existing property, keeping the proposed ALDI grocery store which is currently under construction on its own lot, sized based oƯ the UDO greenspace and impervious requirements, and creating a separate lot which could be developed in the future as a separate property. The future parcel currently contains a cross-access drive which connects the ALDI property and the existing Speedway to the north. The lot currently is in conformance with the UDO for setbacks and minimum landscape percentage and will be evaluated for continued conformance in the future when the lot is developed. The south parcel for the ALDI grocery store has also been reviewed by the design team for conformance to the UDO for setbacks, floor area, and minimum landscape percentage. The review has been completed based on the approved site plan, site engineering, stormwater management, and landscaping. The proposed site is in conformance with UDO requirements. A review of the site has indicated that there are no wetlands, woodlands, steep slopes or other features which classify or meet the characteristics of natural resources – refer to Natural Resources Protection Plan. Stormwater for the ALDI property is managed via a wet-pond and associated storm sewer which have been constructed. The existing pond and storm sewer do cross the proposed dividing property line. Reconfiguration or expansion of the pond and any necessary easements will be completed during future design of a proposed development of the northern parcel. /i255 /1/2/3/4/i255/5/6/i255/7/8/9/10/11/12/2/10/i255/i255 /13 /8/3/2/14/12/15/i255/16/17/i255/13/18/19/2/10/2/20/3/8/9/3/2/21/15/i255/22/3/9/10/18/9/8/18/20/i255/9/10/18/i255/23/8/5/14/15/18/24/8/15/20/i255 /25/10/2/6/2/15/18/i255/26/15/21/15/12/5/27/19/15/10/3/i255/28/8/18/2/10/9/10/14/15/i255/i255/i255 /29 /29/i255 /25/10/2/6/2/15/18/i255/26/15/21/15/12/5/27/19/15/10/3/i255/28/8/18/2/10/9/10/14/15/30/i255/1/2/3/4/i255/5/6/i255/7/8/9/10/11/12/2/10/30/i255/31/2/20/14/5/10/20/2/10/i255 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Line of the SW 1/4 of Sec. 8-5-21N89° 45' 32"E 391.55' exist. silo1" Iron Pipe 1" Iron Pipe 0.5" Rebar1" Iron PipeW. Church St.variable width Public R/W S. Scepter Dr.80' wide Public R/WS. Lovers Lane Rd. (S.T.H. "100" - U.S.H. "45")200' wide Public R/W1" Iron Pipe unplatted lands LOT 1145,053 SQ. FT./3.33 AC.348.82'Denotes No Vehicular Access to S.T.H. "100" Denotes No Vehicular Access to S.T.H. "100"60'x60' VisionCorner Building Setback Line (typ.) 20.0'10.0' Building Setback Line (typ.)WIDOT Building Setback Line (typ.)40.0'50.0'10.0' L=167.80'R=790.00'CH B=N6° 19' 25"WCH L=167.49'D=12°10'12"2 12 N89° 45' 32"E122.44'N89° 45' 32"E 269.11'S0° 08' 40"E135.00'N89° 45' 32"E269.34'LOT 236,346 SQ. FT./ 0.83 AC. S89° 45' 41"W 245.70'1" IronPipe 20.0'10.0'10.0'10.0'10.0' 1 135.00'3/4" Iron Pipe3/4" Iron Pipe3/4" Iron PipeL O T 1C. S. M 9 7 1 6 N0° 14' 19"W 317.26' A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN 00100'200' CERTIFIED SURVEY MAP NO. Sheet 1 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210SE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap found NE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap foundOwner/Developer:Midland Commercial Development Corp.Site:7765 S. Lovers Lane RdFranklin, WITK -7959001000 BEARINGS ARE REFERENCED TO THEEAST LINE OF THE SW 1/4OF SEC. 8-5-21ASSUMED TO BEAR N 0°14'19" W. Current Zoning:"B-R" Regional BusinessDistrict VICINITY MAPW. Rawson Ave.S. Lovers Lane Rd.SW 1/4 of Sec. 8-5-21(Scale 1" = 2000')Northing: 344,763.69Easting: 2,493,823.23 Northing: 337,407.69Easting: 2,493,812.22 08/20/2026Site SHEET 1 LEGEND :INDICATES FOUND MONUMENTATION,AS NOTED ON DRAWING.INDICATES SET 3/4" DIAM. REBAR, 18"LONG WEIGHING 1.50 LBS/LIN. FT.LOT 1 AND 2 ARE SERVED BY PUBLICWATER AND SANITARY SEWER S. Scepter Dr.80' wide Public R/WS. Lovers Lane Rd. (S.T.H. "100" - U.S.H. "45")200' wide Public R/W W. Church St.variable width Public R/W unplatted lands East Line of the SW 1/4 of Sec. 8-5-21S0° 14' 19"E 163.50'S89° 45' 41"W50.00'N0° 14' 19"W 163.50'Access Easement perDoc. No. 6457152 &6790405LOT 1LOT 2L O T 1C. S. M 9 7 1 6N89° 45' 41"E50.00'Future Water Main Easementby Other Document 00100'200' CERTIFIED SURVEY MAP NO. Sheet 2 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210 NE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap foundEXISTING EASEMENTS EXHIBIT SE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap found08/20/2026 A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN S. Scepter Dr.80' wide Public R/WS. Lovers Lane Rd. (S.T.H. "100" - U.S.H. "45")200' wide Public R/W W. Church St.variable width Public R/W unplatted lands East Line of the SW 1/4 of Sec. 8-5-21S0° 14' 19"E90.00'N89° 45' 41"E10.00'Utility Easementper Doc. No.6851514 LOT 1LOT 2L O T 1C. S. M 9 7 1 6Critical Access DrivesDoc. No. 11565369S89° 45' 41"W10.00'N0° 14' 19"W90.00'N89° 45' 37"E25.51'S0° 58' 44"E 140.48'L=25.81'R=72.12'CH B=S9° 16' 25"WCH L=25.67'D=20°30'18"S18° 20' 22"W 152.00'S1° 01' 48"E 112.39'L=56.06'R=34.85'CH B=S38° 27' 10"ECH L=50.21'D=92°09'08"N89° 45' 41"E35.23'S0° 14' 19"E22.13'S89° 45' 41"W76.26'L=33.80'R=78.45'CH B=N42° 15' 32"WCH L=33.54'D=24°41'20"L=43.18'R=43.66'CH B=N1° 34' 50"WCH L=41.44'D=56°40'03"N22° 00' 20"E7.62'N0° 15' 42"W105.83'N18° 01' 06"E34.37'N18° 01' 34"E35.13'S89° 45' 45"W 298.74'N0° 14' 15"W 24.00'N89° 45' 45"E 306.65'N18° 00' 54"E64.00'L=13.81'R=65.94'CH B=N12° 00' 48"ECH L=13.79'D=12°00'12"N0° 27' 42"E 139.04'L=1.30'R=22.70'CH B=N1° 10' 28"WCH L=1.30'D=3°16'19" 08/20/202600100'200' CERTIFIED SURVEY MAP NO. Sheet 3 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210 NE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap foundEXISTING EASEMENTS EXHIBIT SE corner ofSW 1/4 ofSec.8-5-21Conc. Mon. w/brass cap found A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN CERTIFIED SURVEY MAP NO. Sheet 4 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210 SURVEYOR'S CERTIFICATESTATE OF WISCONSIN)SSMILWAUKEE COUNTY)I, Kevin A. Slottke, Professional Land Surveyor, hereby certify that I have surveyed, divided and mapped apart of Lot 2 of Certified Survey Map No. 9716, recorded in 2025, as Document No. 11561611, being a part of theSoutheast 1/4 and Northeast 1/4 of the Southwest 1/4 of Section 8, Town 5 North, Range 21 East, in the City ofFranklin, Milwaukee County, Wisconsin, more particularly described as follows:Beginning at the southwest corner of said Lot 2; thence N 0°14'16" W, along the west line of said Lot 2, 317.26feet to a point of curvature; thence northwesterly 167.80 feet along the arc of a curve whose radius lies 790.00feet to the west and whose chord bears N 6°19'25" W, 167.49 feet to the north line of said Lot 2; thence N89°45'32" E, along said north line, 391.55 feet to the east line of said Lot 2; thence S 0°14'19" E, along said eastline, 483.82 feet to the south line of said Lot 2; thence S 89°45'41" W, along said south line, 93.49 feet to a point ofcurvature; thence westerly 34.61 feet along the arc of a curve whose radius lies 17.35 feet to the south and whose chordbears S 89°45'41" W, 34.61 feet; thence continuing along said south line S 89°45'41" W, 245.70 feet to the southwestcorner of said Lot 2 and the point of beginning.Said parcel contains 181,399 square feet or 4.16435 acres of land, more or less.That I have made the survey, land division, and map by the direction of the owners of said land. That themap is a correct representation of all the exterior boundaries of the land surveyed and the land division thereofmade. That I have fully complied with s. 236.34 of the Wisconsin Statutes and of the City of Franklin UnifiedDevelopment ordinance - Division 15 in surveying, dividing and mapping the same.August 20, 2026Kevin A. Slottke S-2503 A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN CERTIFIED SURVEY MAP NO. Sheet 5 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210 ENTITY OWNER'S CERTIFICATEMidland Commercial Development Corp., as owner, caused the land described on this map to be surveyed, dividedand mapped as represented on this map.Midland Commercial Development Corp., as owner, does further certify that this map is required by s. 236.10 or236.12 to be submitted to the following for approval or objection: The City of Franklin.IN WITNESS WHEREOF, the said Midland Commercial Development Corp., owner, has caused these presents to besigned,at _ ____________, Wisconsin, this_____ day of ___________, 20 .By: Midland Commercial Development Corp.[signature][printed name & title] STATE OF WISCONSIN) )SSMILWAUKEE COUNTY)Personally came before me this day of , 20____, theabove-named__________________________, to me known to be the person who executed the foregoing instrumentand to me known to be the_____________________________ of Midland Commercial Development Corp., andacknowledged that they executed the foregoing instrument as such member as the deed of said corporation, by itsauthority.(SEAL)NOTARY PUBLIC signature, STATE OF WISCONSINnotary printed nameMY COMMISSION EXPIRES .08/20/2026 A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN CERTIFIED SURVEY MAP NO. Sheet 6 of 6 PROJECT # 23267 DRAFTED JMBwww.thesigmagroup.com1300 West Canal StreetMilwaukee, WI 53233Phone: 414-643-4200Fax: 414-643-4210 CITY OF FRANKLIN COMMON COUNCIL CERTIFICATE OF APPROVALTHIS CERTIFIED SURVEY MAP WAS APPROVED UNDER RESOLUTION NO. __________ADOPTED BY THE COMMON COUNCIL OF THE CITY OF FRANKLIN ON THIS _____ DAY OF ______, 20_____,_____________________________________________________________________________JOHN R. NELSON, MAYOR SHIRLEY J. ROBERTS, CLERK 08/20/2026 A DIVISION OF A PART OF LOT 2 OF CERTIFIED SURVEY MAP NO. 9716, BEING A PART OF THESOUTHEAST 1/4 AND NORTHEAST 1/4 OF THE SOUTHWEST 1/4 OF SECTION 8, TOWN 5 NORTH,RANGE 21 EAST, IN THE CITY OF FRANKLIN, MILWAUKEE COUNTY,WISCONSIN Planning Department TO: City of Franklin Plan Commission FROM: Régulo Martínez-Montilva, AICP, CNUa, Planning Manager Planning Department DATE: August 14, 2026 SUBJECT: Comprehensive Master Plan Update: Draft for Plan Commission recommendation At the previous meeting for this Comprehensive Master Plan Update in June, the Plan Commission provided feedback on a second draft. Planning Department staff also made revisions to the future land use map per the “Prioritization of Industrial and Retail Nodes” report prepared by the Economic Development Commission1. Planning Department staff is presenting before you tonight the Comprehensive Master Plan Update for consideration of the Plan Commission and recommendation to the Common Council. Contents of plan update A comprehensive plan is a policy document to set goals, objectives and recommendations for the city’s growth and environmental conservation. The comprehensive plan have a future land use map that shows how the city might look like in 20-25 years (planning horizon). The current comprehensive plan was prepared in 2009 with a planning horizon for 2025, this plan update extends the planning horizon to 2050. This is a partial update as only the following plan elements are being updated: Chapter 1: Introduction.  Section added about the scope of the 2050 Comprehensive Master Plan update (prepared in 2025-2026).  History section updated with events after 2009. Chapter 2: Issues & Opportunities.  Background section updated: Community Character, Relevant Prior Planning Studies, Demographic Profile and TIF Districts.  New 2026 Public Participation. 1 Report available in the Economic Development Commission meeting packet of July 30, 2026. E.2 Chapter 5: Land Use.  Principles, Goals and Objectives updated.  Existing Conditions updated: Land Use Programs, Unified Development Ordinance Rewrite, Public Participation, Natural Limitations for Future Development, Special Considerations and Issues.  Land Use Trends updated  Future Land Use Plan updated.  Summary of Recommendations updated.  New maps: Areas of Natural Resources, and Sidewalk/Trail Network. Appendix C: City of Franklin, Demographic Variables and Comparisons updated with 2010 and 2020 census data as well as 2024 population projections for the year 2050. Appendix J: 2026 Public Participation Results (new). Draft chapters and appendices have been prepared in-house by Planning Department staff: Planning Manager Martínez, Principal Planner Ecks (parts of Chapters 2 and 5), Associate Planner Hamill (maps), Assistant Planner Melton (table of contents, revisions to all chapters, Demographic Profile, Existing Land Use inventories, Appendices C, E and J). Project schedule and next steps This plan update is on track with the project schedule, these steps have been completed so far:  Planning staff presented a first draft of the plan update and the public participation plan. The Plan Commission recommended approval of the public participation plan which was adopted by the Common Council on April 21, 2026.  As part of the public participation plan, Planning staff held an Open House at the Arbor Day event on Saturday May 2, in the Franklin Library parking lot, with a turnout of 60 participants.  Second draft presented to Plan Commission on June 18; and future land use map presented to the Economic Development Commission on July 30. For tonight’s meeting: presentation of 3rd draft for Plan Commission recommendation to the Common Council, pursuant to Wisconsin Statutes § 66.1001(4)(b). Resolution attached. Pursuant to Wisconsin Statutes § 66.1001(4)(c) and sub. (d), the Common Council shall hold a public hearing and enacts an ordinance to amend the city’s comprehensive plan. See all steps in Project Schedule (next page). Project Schedule Project Steps 2026 2027 Apr May Jun Jul Aug Sep Oct Nov Dec Jan Feb Mar ✅ 1st draft ★ ✅ Plan Commission: Public Participation Plan (Apr. 9, recommendation) ● ✅ Common Council: Public Participation Plan (Apr. 21, adoption) ● ✅ Open House on Arbor Day (May. 2) ● ✅ 2nd draft (with input from Open House) ★ ✅ Plan Commission: Review of plan update draft ● ✅ 3rd draft (with Plan Commission feedback) ★ → Plan Commission: Recommendation ● 4th draft (if Plan Commission recommends changes) ★ Common Council: Public Hearing and adoption ● Additional drafts (if needed) ★ Additional meetings (if needed) ●  The full comprehensive plan update is in the electronic packet for the September 3, Plan Commission meeting, available at: https://www.franklinwi.gov/Departments/Elected-Officials/Boards-Comissions/Plan-Commission.htm The printed packet for this meeting only contains updated chapters (1, 2 & 5) and appendices (C & J).  Plan drafts are also available on the city’s ecode360 platform at: Comp. Plan Update (2026) - Public Documents - City of Franklin, WI Meeting ●Deliverable ★ STATE OF WISCONSIN CITY OF FRANKLIN MILWAUKEE COUNTY PLAN COMMISSION draft 7-28-26 RESOLUTION NO. 2026-____ A RESOLUTION RECOMMENDING THE ADOPTION OF THE 2050 COMPREHENSIVE MASTER PLAN, AN UPDATE TO THE 2025 COMPREHENSIVE MASTER PLAN TO THE COMMON COUNCIL PURSUANT TO WIS. STAT. § 66.1001(4)(b) __________________________________________________________________________ WHEREAS, the City of Franklin Plan Commission, together with the residents of the City of Franklin by way of public informational meetings, Planning Department staff and City staff, has prepared the 2050 Comprehensive Master Plan by updating the following chapters of the 2025 Comprehensive Master Plan: 1 Introduction; 2 Issues and Opportunities; 5 Land Use; Appendix C Demographic Variables and Comparisons ; and adding Appendix J 2026 Public Participation Results; and WHEREAS, a comprehensive plan shall contain all elements listed in Wis. Stat. § 66.1001(2)(b); the 2050 Compr ehensive Master Plan consi sts of the following chapters: 1 Introduction; 2 Issues & Opportunities; 3 Agricultural, Natural & Cultural Resources; 4 Economic Development; 5 Land Use; 6 Housing; 7 Transportation; 8 Utilities & Community Facilities; 9 Intergove rnmental Coo peration and 10 Implementation , a copy of which is annexed hereto; and WHEREAS, the aforesaid 2050 Comprehensive Master Plan preparation followed the procedures set forth in the Public Participation Plan adopted by the Common Council by Resolution No. 2026-8474, pursuant to Wis. Stat. § 66.1001(4)(a); and WHEREAS, a comprehensive plan shall be updated no less than once every 10 years pursuant to Wis. Stat. § 66.1001(2)(i); and the City of Franklin has amended the Future Land Use Map of the 2025 Comprehensive Master Plan since its adoption in 2009, but other plan elements have not been updated; and WHEREAS, pursuant to Wis. Stat. § 62.23(2) and (3) and 66.1001(4), the City of Franklin is authorized to prepare and adopt and to amend a comprehensive plan as defined in Wis. Stat. §§ 66.1001(1)(a) and 66.1001(2); and WHEREAS, pursuant to Wis. Stat. § 66.1001(4)(b), t he Plan Commission may recommend the amendment of the Comprehensive Master Plan to the Common Council by adopting a resolution by a majority vote of the entire Commission, which vote shall be recorded in the official minutes of the Plan Commission; and RESOLUTION NO. 2026-______ 2050 COMPREHENSIVE MASTER PLAN Page 2 WHEREAS, the Plan Commission having determined that the 2050 Comprehensive Master Plan, in form and content as is annexed hereto, is in proper form and content f or adoption by the Common Council, subject to such modifications the Common Council may consider reasonable and necessary, following public hearing, in order to protect and promote the health, safety and welfare of the City of Franklin. NOW, THEREFORE, BE IT RESOLVED, by the Plan Commission of the City of Franklin, Wisconsin, that the 2050 Comprehensive Master Plan be and the same is hereby recommended for adoption by the Common Council. Introduced at a regular meeting of the Plan Commission of the City of Franklin this ______ th day of __________, 2026. Passed and adopted at a regular meeting of the Plan Commission of the City of Franklin this _______ th day of ________, 2026. APPROVED: _________________________________ John R. Nelson, Chairman ATTEST: ___________________________________ Shirley J. Roberts, City Clerk AYES _____NOES _____ ABSENT _____ Department of City Development Mike Miller Images Mike Miller Images City of Franklin 2050 Comprehensive Master Plan Adopted XXXXX xx, 2026 Acknowledgements and Plan Contents 2025 Comprehensive Master Plan (Adopted 2009) Mayor Thomas M. Taylor Common Council Steve Olson (District 1), Timothy C. Solomon (District 2), Kristen Wilhelm (District 3), Steve F. Taylor (District 4), Lyle Sohns (District 5), and Kenneth P. Skowronski (District 6) Plan Commission Chair: Mayor Thomas M. Taylor Members: Alderman Kenneth P. Skowronski, David Fowler, Kevin Haley, Pete Kosovich, and Randy Ritter John Bennett, City Engineer Comprehensive Master Plan Update Project Committee Chair: Mayor Thomas M. Taylor Members: Alderman Kenneth P. Skowronski, David Fowler, Kevin Haley, Pete Kosovich, and Randy Ritter John Bennett, City Engineer Consultants PDI/GRAEF, R.A. Smith National, and Cedarburg Science Special Thanks Special thanks for their input and contributions to the Economic Development Commission, City Attorney’s Office, Police Department, Fire Department, and Engineering Department. 2050 Comprehensive Master Plan Update (2026) Mayor John Nelson Common Council Clarke Johnson (District 1), Michelle Eichman (District 2), Yousef Hasan (District 3), Mira Kresovic (District 4), Nabil Salous (District 5), and Danelle Kenney (District 6). Plan Commission and Comprehensive Master Plan Update Project Committee Chair: Mayor John Nelson Members: Alderwoman Michelle Eichmann, Alderman Nabil Salous, Kevin Haley, Patrick Leon, Michael Shawgo, and Rebecca Specht Department of City Development Staff Régulo Martinez-Montilva, Planning Manager Marion Ecks, Principal Planner Luke Hamill, Associate Planner Rose Melton, Assistant Planner Nick Fuchs, Planner John Regetz, Director of Economic Development Special Thanks Special thanks for their input and contributions to the Health Department, Engineering Department, Department of Administration, City Attorney’s Office and Economic Development Commission. Comprehensive Master Plan Contents Chapter 1: Introduction (updated 2026) Chapter 2: Issues & Opportunities (updated 2026) Chapter 3: Agricultural, Natural, & Cultural Resources Chapter 4: Economic Development Chapter 5: Land Use (updated 2026) Chapter 6: Housing Chapter 7: Transportation Chapter 8: Utilities and Community Facilities Chapter 9: Intergovernmental Cooperation Chapter 10: Implementation Appendices: A: Resolutions and Ordinances B: Public Comment C: City of Franklin, Demographic Variables and Comparisons D: City Planning Survey 2005 – Citywide Results E: Issues and Opportunities, Design Preference Survey and Listening Session Results F: Data Parameters for the Natural & Agricultural Resource Assessment in Franklin G: Agricultural Lands, Hydric Soils, Linkages, and Natural Resources Maps by Planning Area H: Trade Area Market Profile Reports and Retail Marketplace Profiles 2005 I: Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy for the Southwestern Portion of the City of Franklin, and Associated Documentation J: 2026 Public Participation Results Chapte r 1: Introduction Franklin 2050 Com prehensive Master Plan 3rd Draft (August 2026) CHAPTER 1: INTRODUCTION TABLE OF CONTENTS 2025 Comprehensive Master Plan (vintage 2009) ............................................................................................... 2 2050 Comprehensive Master Plan Update (2025-2026) ..................................................................................... 3 History ...................................................................................................................................................................... 4 Wisconsin’s Comprehensive Planning Legislation ................................................................................................. 9 Effective Date ....................................................................................................................................................... 9 FIGURES Map 1.1: City of Franklin Base Map .......................................................................................................................... 7 Map 1.2: City of Franklin Aerial Photo (2024) .......................................................................................................... 8 Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-1 CHAPTER 1: INTRODUCTION The City of Franklin Comprehensive Master Plan sets forth goals, objectives, policies, standards, guidelines and recommendations, for the growth, development, redevelopment, and preservation of the City of Franklin. The Plan also provides numerous suggestions and recommendations of topics for further study, some of which may not be undertaken within the timeframe of this plan. This plan can and will be reviewed and amended over time, providing specific opportunities for the reaffirmation, prioritization, and pursuit of such studies, the results of which will be incorporated into this plan as appropriate. The City of Franklin Comprehensive Master Plan is an official public document used to direct future actions of the City as they relate to planning, zoning, land division, and official mapping. However, the Comprehensive Master Plan is not the City’s zoning ordinance. Moreover, the Comprehensive Master Plan requires only that the City’s zoning ordinance be consistent with the Plan – the zoning ordinance is not required to be identical to the Plan. A comprehensive plan must meet the requirements of state statute 62.23(3) and Wisconsin’s Comprehensive Planning Law set forth in state statute 66.1001. In 2009, the City of Franklin adopted the 2025 Comprehensive Master Plan after a combined effort, over almost four years, of consultants, city staff, elected officials, residents, and property owners. This effort included consideration of the City of Franklin’s previous plans and studies, including the previous Comprehensive Master Plan prepared in 1992, and incorporate many of the findings and recommendations of those plans. In 2024, the Common Council authorized the Planning Department staff to start an update of demographic data of the 2025 Comprehensive Master Plan. The planning horizon for this update is the year 2050 , as population projections by the Wisconsin Department of Administration and the Southeastern Wisconsin Regional Planning Commission (SEWRPC) are available through 2050. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-2 2025 COMPREHENSIVE MASTER PLAN (VINTAGE 2009) In 2009, the City was divided into neighborhood planning areas to address specific concerns related to preservation of neighborhood character, local environmental assets, and infrastructure needs. As required by Wisconsin State Statute 66.1001, a Public Participation Plan was adopted by the Common Council on August 5, 2008 (a copy of Resolution NO. 2008- 6470 is included in Appendix A). In this regard, it can be noted that the planning process included: • 33 Project Committee meetings • 21 Plan Commission meetings • 19 Neighborhood Planning meetings • 3 city-wide public meetings • 1 City newsletter article • a community wide opinion survey and a design preference survey • a periodically updated City website devoted exclusively to the Comprehensive Master Plan update In addition, all comments received on the draft plan were reviewed and considered by the Project Committee, the Plan Commission, and the Common Council. A copy of that information has been included in Appendix B. All factors of development were addressed in the Comprehensive Master Plan, including social, economic, and physical. It was necessary to look beyond only the physical attributes of growth in order to obtain the successful implementation of the Comprehensive Master Plan. Healthy communities grow in all three areas, and a balance should be achieved to provide a quality environment for residents. • Social issues include those which contribute to the City’s character — gathering areas, civic identity, and the “community” feeling identified by residents. • Economic influences include the creation of jobs, balance of City expenses and revenue, and land value influenced by natural amenities and water quality. • Physical factors include the actual development of the land — how it looks and feels, what types of development are allowed, and where the development is located. The 2009 p lan recommended development types that were compatible with the uses and goals of the community, will lead to increased value of the City, and endeavors to increase the non-residential tax base from approximately 18 percent to 30 percent. These factors are interrelated and influence the City’s growth and its attractiveness to existing properties owners, as well as to new and prospective residents and businesses. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-3 2050 COMPREHENSIVE MASTER PLAN UPDATE (2025-2026) In 2025, Planning Department staff started a plan update to extend the planning horizon from 2025 to 2050. It’s a selective update as only the following Chapters are part of the scope: Chapter 1: Introduction. • History section updated. • Base Map and Aerial Photo updated. Chapter 2: Issues & Opportunities. • Community Character updated with 2024 Rural and Urban Areas Map. • Demographic Profile updated with 2010 and 2020 C ensus data as well as population projections for 2050. • Relevant Prior Planning Studies updated with studies completed between 2009 and 2025. • Tax Incremental Financing (TIF) Districts Section updated. • Public Participation updated with additional activities. • Principles, Goals and Objectives. Chapter 5: Land Use. • Principles, Goals and Objectives. • Existing Land Use Programs updated. • Existing Zoning updated to account for the 2025 Unified Development Ordinance. • Public Input. • Natural Limitations for Future Development : Development Limitations and Environmentally Sensitive Areas maps updated. • Some parts of Special Considerations and Issues updated, specifically: Traditional Neighborhood Development, Conservation Subdivision, Mixed-Use Development, Design Standards, Sustainability and Recreational Trails. • New Sidewalk and Trail Network map. • Existing Land Use Inventory updated: 2010, 2020 and 2024. • Land Use Trends updated with 1985-2024 analysis. • Price of Land updated with 2023 data. • Future Land Use Plan updated. • Summary of Recommendations , recommendations accomplished by the 2025 Unified Development Ordinance (UDO) moved to UDO Rewrite section, new recommendations added. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-4 Appendix C: City of Franklin, Demographic Variables and Comparisons updated with 2010 and 2020 C ensus data as well as 2024 population projections. New Appendix J: Public Participation activities 2026: results. The City of Franklin Common Council adopted a Public Participation Plan for t his update on April 21, 2026 (see Chapter 2). HISTORY Sound planning is important to City of Franklin officials, landowners, and residents. The City of Franklin stand s at a crucial point in time in terms of making decisions about its future growth and development. The City has experienced rapid and continual growth in developed land between 1980 and 2010, and a slower growth between 2010 and 2024. The City of Franklin experienced a rapid population growth between 1980 and 2010, over 20% per decade . In 1980, Franklin was the 34th largest community in Wisconsin, the 18th largest in southeast Wisconsin, and the 9th largest in Milwaukee County by populations. In the year 2000, Franklin was the 23rd largest community in Wisconsin, the 11th largest in southeast Wisconsin, and the 5th largest in Milwaukee County. In 2020, Franklin was the 23rd largest community in the Wisconsin, the 11th largest community in the southeast Wisconsin, and the 5th largest in Milwaukee County. Within Milwaukee County, the City of Franklin (along with the City of Oak Creek) is the County’s last “frontier” with the most significant amount of remaining undeveloped land. A timeline of notable events in the history of Franklin is set forth below, and is also intended to encourage further interest by the reader in these topics. 1 • The area that would eventually include the City of Franklin is the traditional homeland of indigenous people including the Mesquaki, Sauk and Fox, Dakota Oyáte, Ioway, Miami, and Kickapoo and Mascouten. More recent inhabitants included the Bodwe’wadmi or Potawatomi. The Indian Community School also acknowledges the area’s importance to the Ho -Chungra or Ho -Chunk and 1 Additional information concerning the City of Franklin’s history can be found in the City’s 1992 Comprehensive Master Plan, and “From Cabins to Condos, The History of Franklin, Wisconsin Since 1834”, published by the Franklin Historical Society. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-5 Omāēqnomenēwak or Menominee2. • The first recorded permanent European settlers in the area that would one day become the City of Franklin arrived in the early 1830’s. • In 1838, the then Town of Kinnickinnic was divided into the Towns of Kinnickinnic and Franklin. At that time, the Town of Franklin population was about 240 persons. • In 1842, the unincorporated community of St. Martins was established, and the first official Town Hall meeting was held that year. • In 1848, the first church, Holy Assumption, was built. • In 1850, the St. Martins area was platted (comprised of about 80 acres and about 100 lots), the first mill was constructed, the first public school (Riverside) was built, there were about 150 farms, and the Town’s population was about 1,200 persons. • In 1870, the Town’s population was about 2,100 persons. • From about 1904 to 1939, the St. Martins area was serviced by the Interurban Rapid Transit Line. • In 1930, the Town’s population was about 2,000 persons. • In 1945, Hales Corners Airport was established. • In 1950, the Town’s population was 3,886 persons, and by 1960 it had increased by about 158 percent, to 10,006 persons (the largest percentage increase to date). • In 1954, the Franklin Fire Department (volunteer) was established. • In 1956, the Town incorporated and became the City of Franklin. • In 1964, the Franklin Police Department was established. • In 1965, the City of Franklin prepared its first comprehensive plan. • In 1966, the Franklin Industrial Park was created. • In 1969, public sanitary sewer service first became available from the Milwaukee Metropolitan Sewerage District. • The old Town Hall building (built in 1865) continued to be used until 1970. 2 Land and Water Acknowledgement. Indian Community School. https://www.ics-edu.org/page/land-and-water-acknowledgment. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-6 • In 1970, City Hall was built, and the first full-time member of the Fire Department was hired. • In 1977, the Water Utility was created. • In 1980, the City of Franklin’s population was 16,871 persons. • In 1993, the Franklin Business Park was created. • In 1990, the City’s population was 21,855 persons, and by 2000 it had increased by 7,639 persons, to 29,494 (the largest numerical increase to date). • In 1998, the City adopted the Unified Development Ordinance (UDO). • In 2002, the Franklin Public Library was built. • In 2007, the City of Franklin was recognized as one of the top 100 “Best Places to Live” by Money Magazine. • In 2009, the City of Franklin adopted the 2025 Comprehensive Master Plan. • In 2016, the Franklin Corporate Park was created. • In 2020, the City’s population reached 36,116 persons, a slight growth of 1.8% from 35,451 persons. • In 2025, the City adopted a rewrite of the 1998 Unified Development Ordinance. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 1-9 WISCONSIN’S COMPREHENSIVE PLANNING LEGISLATION The Comprehensive Master Plan provides a framework for future growth and development of the City and is enacted to meet the requirements of Wisconsin’s Comprehensive Planning legislation. The Plan focuses on the nine “Smart Growth” elements: 1. Issues and Opportunities 2. Housing 3. Transportation 4. Utilities and Community Facilities 5. Agricultural, Natural and Cultural Resources 6. Economic Development 7. Intergovernmental Cooperation 8. Land Use 9. Implementation This plan is adopted under the authority granted by Section 62.23(3) and 66.1001 of the Wisconsin Statutes. Effective Date The City of Franklin 2050 Comprehensive Master Plan was recommended for adoption by the Plan Commission on ________________, 2026. The City of Franklin Common Council adopted this Plan by ordinance on ______________. Cha pter 2: Issues & Opportunities Franklin 2050 Co mprehensive Master Plan 3rd Draft (August 2026) CHAPTER 2: ISSUES & OPPORTUNITIES TABLE OF CONTENTS Introduction .................................................................................................................................................................. 1 2050 Comprehensive Master Plan Update........................................................................................................ 3 Background .............................................................................................................................................................. 4 Community Character .......................................................................................................................................... 4 Relevant Prior Planning Studies ......................................................................................................................... 7 Demographic Profile .......................................................................................................................................... 12 TIF Districts ........................................................................................................................................................ 21 Public Participation ................................................................................................................................................ 22 Planning Areas: Issues and Preferences .............................................................................................................. 25 Citywide Principles, Goals and Objectives ............................................................................................................ 27 Principles ............................................................................................................................................................ 28 Goals and Objectives ......................................................................................................................................... 33 FIGURES Chart 2.1: Difference Between Population Projections, City of Franklin ................................................................ 13 Chart 2.2: Population Pyramid, City of Franklin (2020) .......................................................................................... 14 Chart 2.3: Population Pyramid, Milwaukee County (2020) ..................................................................................... 15 Chart 2.4: Total Jobs by North American Industry Classification (NAICS) Industry, City of Franklin (2020) ........ 18 Chart 2.5: Housing Units Constructed in Franklin (2001 to 2024) ........................................................................ 20 Chap ter 2: Issues & Opportunities Franklin 2050 Com prehensive Master Plan 3rd Draft (August 2026) Map 2.1: Regional Map .............................................................................................................................................. 2 Map 2.2: Rural and Urban Areas ................................................................................................................................ 6 Tabl e 2.1: Population and Household Changes by Decade, City of Franklin (1990 to 2020) .............................. 19 Table 2.2: Single-Family Housing Issues Response Excerpts ................................................................................. 24 Table 2.3: Multi-Family Housing Issues Response Excerpts ................................................................................... 24 Table 2.4: Community Facilities and Open Spaces Response Excerpt .................................................................. 25 Table 2.5: Public Policies and Community Information Community Survey Response Excerpts .......................... 25 Table 2.6: Infrastructure Response Excerpt ............................................................................................................ 25 Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-1 CHAPTER 2: ISSUES & OPPORTUNITIES INTRODUCTION A major element of any comprehensive plan is the identification of goals and objectives. But because the values and opinions held by a community’s citizens is often very diverse, the identification of goals and objectives can become very difficult, if not impossible, unless common issues and opportunities can be identified. Wisconsin’s Comprehensive Planning Legislation understands the importance of this, as evidenced by its identifying issues and opportunities as one of the elements that all comprehensive plans must contain. Section 66.1001(2)(a) of the Wisconsin Statute describes the Issues and Opportunities Element as: “Background information on the local governmental unit and a statement of overall objectives, policies, goals and programs of the local governmental unit to guide the future development and redevelopment of the local governmental unit over a 20-year planning period. Background information shall include population, household and employment forecasts that the local governmental unit uses in developing its comprehensive plan, and demographic trends, age distribution, educational levels, income levels and employment characteristics that exist within the local governmental unit.” As shown on Map 2.1, the City of Franklin is located in the southwestern corner of Milwaukee County. It is bordered on the north by the City of Greenfield and the Villages of Greendale and Hales Corners, on the east by the City of Oak Creek, on the south by the Town of Raymond in Racine County, and on the west by the City of Muskego in Waukesha County. The City of Milwaukee is located immediately northeast of the City of Franklin and abuts Franklin at a point located at the intersection of S. 27th Street and W. College Avenue. Interstate Highway 94 is located about 0.75 miles east of the City, Interstate Highway 894/43 is located about 2.25 miles north of the City, General Mitchell International Airport is located about 2.5 miles northeast of the City, and the Port of Milwaukee is located about 8.5 miles northeast of the City. Map 2.1: Regional Map I Planning Department 9229 W Loomis Rd F ranklin WI-53132 Regional Map 1 inch : 3 mile 0 1 2½ mile May 2026 City of Franklin Comprehensive Plan City of Franklin Boundary Municipal Boundaries Rivers & Streams Waterbodies Major R oads County Road Interstate Highway State Highway US Highway Norway Raymond Caledonia Racine Muskego New Berlin Franklin West Allis West Milw aukee Milwaukee Greendale Greenfield St. Francis Cudahy Oak Creek South Milw aukee Source: Wisconsin Department of Natur al Resources Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-3 While located within the Milwaukee metropolitan area, the City of Franklin is also adjacent to suburban and rural communities. Although primarily suburban in character itself, the City of Franklin actually consists of a variety of land uses and densities: • a developing corridor along 27th Street in the east; • relatively dense residential neighborhoods in the north and northeast; • relatively spacious residential neighborhoods in the northwest and east; • rural and agricultural land uses in the south and southwest; • a quarry in the northeast; • a landfill in the southwest; • three business parks in the south; and • an industrial park in the northwest. During the preparation of the 2009 C omprehensive Master Plan, the City was divided into nine planning areas (see Map 5.4 in Chapter 5 ), the 2050 Comprehensive Plan update is not proposing any changes to the boundaries of these planning areas. The Comprehensive Master Plan addresses the City as a whole, but will also include specific recommendations for each of the nine planning areas. The issues and opportunities chapter is organized in the following sections: • Background. • Public Participation. • Planning Areas: Issues and Preferences. • Citywide Principles, Goals and Objectives. 2050 Comprehensive Master Plan Update The 2009 C omprehensive Master Plan had a planning horizon for the year 2025 . The plan update started in 2025 extends the planning horizon to the year 2050. Major updates to this chapter are listed below: • Community Character updated with 2024 Rural and Urban Areas Map. • Demographic Profile updated with 2010 and 2020 census data as well as population projections for 2050. • Relevant Prior Planning Studies updated with studies completed between 2009 and 2025. • TIF Districts Section updated. • Public Participation, Next Priorities activity added. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-4 • Principles, Goals and Objectives updated. BACKGROUND The following information is intended to help identify and put into perspective the current situation of the City of Franklin. While Chapter 1 of this Plan presented primarily historical information to identify benchmarks during the growth of the community , Chapter 2 present s current information, to show where the City is now. To help put this information in a more understandable perspective, some references to historical change, and benchmarking, are presented. The primary sources of the following information are the year 2000 , 2010 and 2020 U.S. Census, Wisconsin Department of Administration populations projections, Southeastern Wisconsin Regional Planning Commission population projections, and the 1992 and 2009 City of Franklin Comprehensive Master Plan. This Background section consists of: • Community Character • Relevant Prior Planning Studies • Demographic Profile • TIF Districts Community Character Community character is a descriptive term that refers to distinctive features of a particular community. Typical attributes of a community or region that express “character” include historic architecture, neighborhood scale, natural resources and public amenities. Since “character” is influenced by human values and perceptions, the term is difficult to define. The “preservation of community character” is a common urban planning objective for municipalities. As a community on the edge of a major metropolitan area, the City of Franklin struggles with issues related to preservation of its character while accommodating new development. Adding to the challenge is the fact that t he physical form and characteristics of the City of Franklin are varied. Portions of Franklin are rural in nature, while other portions are intensely developed. “Character” is frequently defined by referencing an example: primary environmental corridors, woodlands, agricultural tracts, specific neighborhoods, the Root River and associated streams, the St. Martins area, or the 27th Street Corridor. There may be numerous perspectives on community character that range from urban to suburban to rural. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-5 Rural Character To a large degree, residents identify rural character as a highly valued community asset that encompasses landscapes, economies, and ways of life. While “rural” is also a complex term to explain, it suggests areas of undeveloped acreage that support natural vegetation or agricultural cultivation. The fundamental characteristic of rural environments is open space – lands that are essentially void of buildings or vertical structures and traversed by few roads. For most residents, the rural character of Franklin is prized for its visual quality. A significant portion of Franklin’s population appreciates and encounters the rural character from the vantage point of road corridors. Residents that live on farms or countryside estates, and the many residents who participate in passive outdoor recreation, also experience the rural character. The City adopted the Rural and Urban Areas Map in 1985 ( last updated in 2024) to regulate raising of farm animals and parking of agricultural equipment, typically allowed in rural areas and restricted in urban areas. Per this map, the southwest portion of the City is considered rural (approx. 38% of the City’s area), in this map “urban” represents both urban and suburban characters. Urban Character Urban character on the other hand, suggests those lands typically cleared of most natural vegetation and prominently covered with hard surfaces such as buildings and pavement. As such, the fundamental qualities of the urban character are its buildings and structures, including their size, proximity to one another, and architecture, and its infrastructure, such as roads, sidewalks, lights, etc. Urban character is distinguished by its manmade forms, maximization of human interaction, and tendency to promote a more efficient utilization of services. The urban characteristics of the City of Franklin are primarily found along portions of its major streets where larger expanses of commercial and other types of nonresidential development exist, such as 27th Street between College Avenue and Rawson Avenue, Ryan Road between 27th Street and 60th Street, S. Lovers Lane Road between W. College Avenue and W. Rawson Avenue, and Forest Home Avenue between Rawson Avenue and the city limits to the north. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-6 Map 2.2: Rural and Urban Areas Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-7 Suburban Character Lastly, suburban character contains aspects of both rural and urban character and generally consists of buildings interspersed with both natural and man -made open spaces. The fundamental qualities of the suburban character are their lack of congestion and ability to retain some privacy through use of open spaces. Suburban character is typically prized for its balance between buildings and open space, both through spatial relationships as well as design. Most of the development in the City of Franklin can be described as suburban in character. Summary Preserving the rural community character while at the same time encouraging growth and development generates competition between the need to preserve historic and natural resources and the need to accommodate residential, business and industrial developmen t. Therefore, enhancing and preserving the essential components of Franklin’s urban, suburban and rural characteristics will be considered in the formulation of the actions and strategies of this Comprehensive Master Plan. This balance has been articulated in the goals and objectives set forth later in this chapter. Further information about community character is also located within the 1992 Comprehensive Plan. Relevant Prior Planning Studies This comprehensive plan considers and incorporates many of the proposals and recommendations contained within the 1992 and 2009 comprehensive plans, and from other planning studies as discussed below. The 1992 Comprehensive Master Plan outlined several objectives to steer future development, and included the following: • Preserve and enhance the City’s community character • Protect, preserve, and wisely use the City’s remaining natural resource features • Timely acquisition of public parks and school sites for City residents • Creation of a plan for the City with built -in flexibility relative to both the design of residential and nonresidential areas, as well as the plan amendment process • Preparation of 26 detailed Neighborhood Plans The 2009 Comprehensive Master Plan considered the following planning efforts: City of Franklin Research Findings (Franklin Needs Study) (1998). An economic development needs Study that identifies “holes” in the city’s business base that city officials and residents would like to see filled. The recommendations promote capitalization of Franklin’s unique characteristics, support careful control of the structure and infrastructure of deve lopment, Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-8 focus on a mix of businesses, “citizen driven” commercial development, pedestrian -focused retail environments, and small retail development clusters. Franklin First: Strategies to Bring Balance to Franklin’s Tax Base, The City of Franklin Economic Development Strategic Plan (March 2000). The report (commonly referred to as the Tichnor Report) states “The goal of Franklin First is to decrease the homeowner’s tax burden through quality non-residential development.” The Tichnor Report examines several variables related to development opportunities for twelve non- residential areas within the City that include access, market niche, pricing, workforce, office and secondary business park construction. The Tichnor Report states that the benefits of implementing the Franklin First plan will “Raise the non-residential share of Franklin’s tax base from 17.6 percent to an estimated 24.6 percent by 2020.” Franklin First Development Plan: Site Planning, Preliminary Engineering, Feasibility Analysis, and Financial Analysis for the City of Franklin (October 2001). A document (commonly referred to as the R.A. Smith Report) that provides detailed evaluations and recommendations related to the five key development areas identified by the Strategic Plan Oversight Committee. Conceptual site development plans were prepared for the identified sites, including proposed land use and zoning, land acquisition, infrastructure requirements, development guidelines and financial viability and costs associated with the developments. Long-Term Vision for the City of Franklin (October 2004). A Vision Statement that serves as the foundation for decision-making and the day-to-day operations of the City. The action plan outlined in this document that supports the long -term vision of Franklin delineates specific projects, tasks, and administrative modifications to improve decision -making and day -to-day operations of the City. Crossroads Trade Area: Regulating Plan (November 2004). A market and development concept and regulating plan for the Crossroads Trade area located at Loomis Road (STH 36) and STH 100. This document provides a realistic vision for future development and provides standards and guidelines for implementation of the design concept. The Crossroads plan outlines recommendations for high quality development that accommodates pedestrians, vehicles and open space features. South 27th Street Corridor Plan (2004). A visionary, market -based land use plan that incorporates design guidelines, zoning recommendations and implementation concepts for Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-9 future development; natural areas preservation; and street and circulation design for a significant commercial/retail corridor. WIS 241 (South 27th Street) Access Management Plan, County Line Road to County ZZ (College Avenue), Milwaukee County, Wisconsin (November 2005). A collaborative planning effort sponsored by the Wisconsin Department of Transportation to create a long -term vision for access management of the 27 th Street corridor. The plan envisions the incremental implementation of its recommendations as land uses change over time or when safety issues occur. The plan focused on public and private road access to South 27 th Street, local circulation needs, medians, and signalized intersections and traffic progression. For the 2050 Comprehensive Plan update, this list is expanded with planning efforts between 2010 and 2025: Unified Development Ordinance UDO (1998, 2025). This ordinance contains all of the City’s zoning and land division related regulations within one document. The 2025 UDO is a complete rewrite of the 1998 UDO. See Unified Development Ordinance Rewrite section in Chapter 5 for more information. Comprehensive Outdoor Recreation Plan 2030 CORP (2002, updated 2011 and 2015). The City of Franklin owns a number of parks and conservation areas, as well as properties intended as future parks and open space. The Comprehensive Outdoor Recreation Plan or “CORP”, is the plan for lands owned by the City of Franklin and intended for recreational and conservation uses. The CORP is an extension of the 2009 Comprehensive Plan designed to address projected and prioritized public park, open space, and recreational facilities needs through the year 2030. The plan included recommendations for improving existing facilities, as well as for acquiring and developing new facilities . Preparation, adoption, and regular 5 -year updates of the Comprehensive Outdoor Recreation Plan would maintain the City’s eligibility to apply for the State’s Stewardship Grant Program. In 2011 the community proposed to develop an Inclusive “All Abilities” playground in memory and honor of the life of Kayla Runte, a young community member with special needs. The park is the first of its kind in the region and is designed to be a “truly all- accessible (playground) for Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-10 all children and families of any age and ability.” 1 Since the park was not envisioned in the existing Comprehensive Outdoor Recreation Plan ( CORP), the document was amended to enable its development. Current Status: The overall CORP has not been updated at the required intervals. As of this writing in 2026, the 2015 update to allow for the creation of Kayla’s Playground is the most recent work done on the plan itself, and this was narrowly focused on a single new pa rk. This lack of planning has several impacts on the City’s ability to develop and manage parks: 1. Funding Eligibility: The CORP is a required document to maintain the City’s eligibility to apply for the State’s Stewardship Grant Program for public land acquisition. Without an update, the City is not eligible for grant programs that require an up to date plan. 2. Slowed population growth: The CORP incorporates State of Wisconsin requirements for recreational facilities which are based on population growth projections. Prior plans anticipated relatively rapid population growth. The 2026 Comprehensive Master Plan update includes updated demog raphic information; current projections from this 2026 update foresee a possible decline in population (see Chart 2.1). The current work on the Comprehensive Master Plan does not update the CORP to reflect these trends. This means that some facilities planned for future population may not be necessary or appropriate. 3. Impact fees: The CORP and its recommended facilities are the basis of the Park Impact fee assessed under Wis. Stat. 66.55 on all new residential development on the City. The City charges this fee so that such developments “pay for” the expansion of park facilities recommended in the CORP to meet the increase in population from new homes , without penalizing existing residents. The Impact Fee revenue is not intended to cover the entire cost of new park developments; the City must also provide a “match” of public dollars . If Impact Fess funds are not used within a timeframe set by the state, the funds must be repaid. The current pace of work on plan implementation means that the City has narrowly missed being required to repay these funds . Additionally, the long holding period means that the value of the funds decreases over time due to inflation – a fee assessed in 2020 has very different purchasing power in 2026. 1 https://www.kaylaskrew.org/index.html Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-11 Franklin commissions periodic Impact Fee Studies for all categories of this revenue type, which funds infrastructure such as parks. S ince the expectations for population growth have changed, the plan, and therefore the fees , may be greater than what the C ity needs for its park system. Parkland Acquisition Study (2020). In 2020, the City of Franklin reached a critical moment where it was holding approximately $1.8 million in Park impact fees which needed to be spent down or paid back. In response, the City undertook a Parkland Acquisition Study to identify available lands appropriate for park development and purchase them. The initial phase of this Study resulted in the purchase of lands along Lovers Lane (8120 S LOVERS LANE RD etc.) for a future “mini” park, and site of a City of Franklin Water Tower. The strategy was adopted by Common Council at the September 21, 2021 meeting, and that “Scenario E” be implemented for the future use of Park Impact Fees. Scenario E recommended the purchase of a 60-acre or larger park for future development, and use of any remaining fees on the development of trails. As a result, the City purchased two parcels identified in the Comprehensive Master Plan and CORP as the future “Southwest Park”. Ryan Creek Trail Plan (2022). The Ryan Creek Trail is a large trail segment contemplated by the Comprehensive Outdoor Recreation Plan. The proposed route follows Ryan Creek, which begins in the southwest corner of Franklin and flows east to the Root River. The Ryan Creek corridor includes many important natural resource features and would be an appealing place for recreation. The Concept Plan identifies major features in the region relevant to trail design including: other trail connections; destinations such as existing and future parks and natural areas, schools, civic buildings ; and future residential areas. It proposes one Primary route which generally follows along the Ryan Creek corridor, and several secondary and tertiary connections to key destinations. This plan was adopted by Resolution No. 2022-7874. Housing Affordability Reports (since 2020). Annual reports of the municipality’s implementation of the housing element of the comprehensive plan. Floodplain Zoning Ordinance (2024). This ordinance regulates development in the Special Flood Hazard Area (i.e. where structures can be built on a lot, permitted and prohibited uses), the City first adopted this ordinance in 2008. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-12 Demographic Profile This Chapter’s Demographic Profile presents historic and current population characteristics for the City of Franklin. Selected data includes employment, households, and housing trends. The section also introduces population projections for the City, which later chapters address in greater detail. Appendix C provides detailed tables of selected data used in each of the following sections. Population Projections (Appendix C.1) Multiple agencies prepare population projections for use in policy -making and planning . This Plan uses population projections from the Wisconsin Department of Administration (DOA) and Southeastern Wisconsin Regional Planning Commission (SEWRPC or The Commission). Agencies’ population projections may differ due to the method of preparation , what data is included, and how agencies estimate the impact of policy changes. Chart 2.1 compares the reality of population trends in Franklin with the different projections available. This comparison highlights the shift in population projections between the writing of the Comprehensive Plan (2009) and the 2025 update. SEWRPC provides two population projections: one based on the Recommended Plan and one based on the High Growth Scenario. While both project growth , the outcome depends on whether Franklin implements The Commission's recommendations. This Plan brings attention to two key reasons why The Commission’s estimates project population growth. First, the Recommended Plan assumes that the southwest part of the C ity will get public sanitary sewer service by 2035. In 2026, the Ryan Creek Interceptor Sewer is available in some areas and has allowed the development of new subdivisions since 2017, such as Park Circle, Ryanwood Manor, Ryan Meadows, Cape Crossing and Woodfield Trail. Second, The Commission assumes that residential development will continue at a similar density. Based on these assumptions, The Commission projects that Franklin could grow to 54,900 residents under the High -Growth Scenario. However, infrastructure costs may limit new sewer adoption in the City. Historically, population trends in Franklin have more closely matched projections provided by the DOA. For example, in 2008 the DOA projected that Franklin would reach 34,530 residents by 2020. In 2020, the C ity’s population reached 36,013 residents. DOA Projections prepared in 2024 show the population of Franklin declining after 2020, shrinking to 32,299 residents by 2050. As shown in Chart 2.1, the difference between the population projections by the DOA and SEWRPC increase dramatically over time. The two agencies’ projected 2020 populations differ by around 16%. For the year 2050, the SEWRPC High -Growth Scenario population projection is almost 70% higher than that of the DOA. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-13 Chart 2.1: Difference Between Population Projections, City of Franklin The difference in available population projections highlights the breadth of possibilities available to Franklin, depending on what policies the City prioritizes over the coming decades. Strong growth at the beginning of the City’s history influenced the population projections and the policy decisions made over the last 20 years. This expected growth informed the goals, objectives, recommendations, and policies of the chapters written in 2009. The City’s planning and policy decisions should respond to updated data as it becomes available. Population (Appendix C.1) The City of Franklin witnessed strong population growth between 1980 and 2008, reaching 33,550 residents in 2008. At the time, Franklin was growing at a faster rate compared to surrounding communities and the County as a whole. The City’s highest rate of population increase per decade was around 158%, which occurred between 1950 and 1960. Since 2008, the population has continued to grow but at a much slower rate. As of 2020, the City’s population reached 36,116 residents, this growth represents an increase of only 1.8% from 2010. Franklin is not alone in seeing both slowed growth in the last decade and projected population decline. Of nine neighboring communities, only Oak Creek and Wauwatosa are projected to grow going into 2050. This update contrasts with historic projections, which anticipated both Franklin and Oak Creek growing over 37% going into 2025. Between 2020 and 2050, the DOA projects Franklin’s population to shrink around 10%, which is 35,132 33,747 32,299 51,150 54,900 - 10,000 20,000 30,000 40,000 50,000 60,000 1930 1940 1950 1960 1970 1980 1990 2000 2010 2020 2030 2040 2050 2060 Population Actual Population Estimates Previous DOA Projection (v. 2008) Previous SEWRPC Projection (v. 2008) Current DOA Projection (v. 2024) 2050 SEWRPC Recommended Plan 2050 SEWRPC High-Growth Scenario Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-14 comparable to the projected 9% decrease for the Milwaukee County population. Changes to population age characteristics and fertility can influence population size and projections. The next two sections discuss these characteristics in greater detail. Age Characteristics (Appendix C.2) In line with state and national trends, the population of Franklin is aging. The median age of the City increased to 39.2 years in 2010 and 43.4 years in 2020. In comparison, the median age for Milwaukee County only increased to 35 years in 2020. In 2000, almost half the City’s population was between 25 and 54 years of age. It appears that this population has largely aged in place, resulting in a greater population of residents ages 50 to 69 compared to Milwaukee County. Residents aged 55+ made up a third of Franklin’s population compared to only a quarter of the County’s population in 2020. A population pyramid helps show the distribution of a population by age group (Charts 2.2 and 2.3). A top-heavy or inverted pyramid shape signals an aging population and that younger cohorts are not replacing their older counterparts. This trend can contribute toward population decline, as discussed in the above sections. Age distribution has implications for many aspects of a community and should strongly inform the recommendations of this Comprehensive Plan. Chart 2.2: Population Pyramid, City of Franklin (2020) 5.2% 5.4% 7.2% 5.2% 3.2% 3.8% 5.5% 7.9% 6.4% 5.7% 7.8% 7.9% 7.7% 6.0% 5.0% 4.5% 2.7% 3.0% 6.4% 5.2% 4.5% 5.1% 7.2% 6.0% 6.6% 7.3% 6.5% 6.5% 6.6% 8.6% 7.5% 5.2% 3.2% 3.0% 3.0% 1.7% -10 -8 -6 -4 -2 0 2 4 6 8 10 Under 5 5 to 9 10 to 14 15 to 19 20 to 24 25 to 29 30 to 34 35 to 39 40 to 44 45 to 49 50 to 54 55 to 59 60 to 64 65 to 69 70 to 74 75 to 79 80 to 84 85+ Percent of Population Age (years) Male Female Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-15 Chart 2.3: Population Pyramid, Milwaukee County (2020) The Milwaukee County Community Rehabilitation Center (formerly House of Corrections), is located in the center of the City of Franklin, in Census Tract 1972 Census Block Group 4. According to the City’s history, including the population of this facility was critical for Franklin’s incorporation as a fourth -class city in 1956. 2 The American Community Survey age and population data used in the Demographic Profile includes the residents of the Community Rehabilitation Center (CRC). However, CRC residents are not able to participate in economic, social, and political activities in the same capacity as non-institutionalized residents of the City of Franklin. This inclusion should be carefully considered due to the size and ages of the 2020 CRC population. In 2020, Franklin had 22% more men than women aged 15 to 49 years old. In comparison, there were 3% fewer men than women in this age group than Milwaukee County as a whole. This difference is largely accounted for by the CRC, which had 1,587 residents in 2 020 (1,451 males aged 18 to 64) . 3 In 2020, residents of the CRC accounted for approximately 4.4% of the C ity’s population. For scale, CRC residents accounted for only 0.2% of 2 City of Franklin (n.d.). About Franklin: History. https://www.franklinwi.gov/About -Franklin.htm. 3 U.S. Census Bureau (2020). ACS 5-Year Estimates (Table S0101). 6.5% 6.4% 6.3% 6.2% 6.6% 8.5% 7.7% 6.9% 5.9% 5.7% 5.8% 6.3% 6.0% 4.8% 3.5% 2.2% 1.8% 2.8% 7.2% 6.9% 7.1% 6.9% 7.0% 8.7% 7.9% 6.9% 5.9% 5.8% 5.9% 6.2% 5.6% 4.7% 2.9% 1.8% 1.3% 1.3% -10 -8 -6 -4 -2 0 2 4 6 8 10 Under 5 5 to 9 10 to 14 15 to 19 20 to 24 25 to 29 30 to 34 35 to 39 40 to 44 45 to 49 50 to 54 55 to 59 60 to 64 65 to 69 70 to 74 75 to 79 80 to 84 85+ Percent of Population Age (years) Male Female Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-16 Milwaukee County’s total population in the same year.4 Analyzing the population pyramids while acknowledging the CRC emphasizes Franklin’s small population of young and middle-aged adult residents.5 Birth Rates & Fertility (Appendix C.3) Birth and age specific fertility rates are adjusted based on the population of women aged 15 to 49 years old, which is considered the typical reproductive age group. This normalization allows comparison between Milwaukee County and the City of Franklin despite the County’s much larger population. Between 2010 and 2020, both the City of Franklin and Milwaukee County saw reduced birth rates for females aged 15 to 19. The total birth rate (ages 15 to 50) dropped in Milwaukee County from 58 to 49 per one thousand women between 2010 and 2020. In contrast, the birth rate in the City of Franklin was stable at 55 births per one thousand women during that time . It is important to note that the pandemic may have influenced the birth rate in 2020 and the years immediately following. With the impacts of the pandemic in mind, this analysis compared age specific fertility rates in Franklin and Milwaukee County during 2023. In 2023, the age -specific fertility rate for women aged 25 to 34 were higher in the City of Franklin compared to Milwaukee County. However, Milwaukee County’s 2020 population ha d a much greater proportion of women aged 15 to 49 years old (47.7%) compared to the City of Franklin (37.7%) (see Charts 2.2 and 2.3). Having a smaller population in this reproductive age group likely contributes to the projected population decline, as there are fewer women to give birth compared to the total size of the population. Educational Attainment (Appendix C.4) In general, education levels increased in both the City of Franklin and Milwaukee County between 1990 and 2020. However, the population of Franklin continue d to hold higher levels of education than the County as a whole. In 2020, 93.9% of Franklin residents had at least graduated high school and 40.6% of residents h eld at least a bachelor’s degree. In comparison, 88.7% of County residents had at least graduated high school and 31.3% of residents held at least a bachelor’s degree. Industry and Employment (Appendix C.5) The City of Franklin is home to a selection of retail establishments that offer shopping destinations for residents and visitors. The number of establishments in selected categories rose from 60 in 2002 to 76 in 2022. During 4 U.S. Census Bureau (2020). Decennial Census (Table P18). 5 U.S. Census Bureau (2020). ACS 5-Year Estimates (Table B01001). Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-17 that time, Franklin saw a decrease in the number of Motor Vehicle and Parts Dealers. Growth in the number of establishments included increased Health and Personal Care Retailers as well as Food and Beverage Retailers. It is important to note that the majority of Franklin residents work outside the City. In 2020, only 1,247 (or 7.4%) of Franklin residents both lived and worked in the City. In comparison, 15,562 residents worked outside of the Franklin.6 The mean travel time to work was 25.1 minutes and 83.7% of Franklin workers drove alone (2020). Fewer than 1 percent of workers reported using public transportation or walking to work. Since 2010, the percentage of residents working from home increased from 3.2% to 8.6%. 7 Occupation describes what individuals do at work, while industry describes the specialization of their employer.8 The mix of occupations held by Franklin residents changed little between 2000 and 2020. Management, Professional, & Related remained the most common occupation category (45.8% of employed civilians over 16 years old). Mirroring trends in the County as a whole, Franklin saw small increases in Management, Professional, & Related Services as well as in Service occupations. While the mix of occupations remained similar, the industries that Franklin residents work in shifted between 2000 and 2020. Notable changes include fewer Franklin residents working in the Agricultural, Manufacturing, and Information industries. At the same time, the percent working in Educational, Health and Social Services increased (19.5% to 24.4% of workers). The number of establishments in the health and educational industries also increased between 2002 and 2022. In particular, the number of Health Care & Social Assistance establishments increased to more than 85 in 2022. Of the selected industries, Health Care & Social Assistance establishments had the second highest revenue and by far the greatest annual payroll in 2022. This data represents a shift from 2002, when Retail Trade establishments had the largest revenue , annual payroll , and most employees of these selected industries . However, the selected industries leave out Manufacturing establishments, which represent a critical part of Franklin’s economy. Over the last 30 years, the City of Franklin has prioritized industrial and manufacturing development and attraction. This priority has helped increase the number of manufacturing jobs located in the City to from 2,526 in 2002 to 3,542 in 2022. 9 In total, the City of Franklin provided 13,559 total jobs in 2020. 6 U.S. Census Bureau (2020). OnTheMap Application and LEHD Origin -Destination Employment Statistics. https://onthemap.ces.census.gov/. 7 U.S. Census Bureau (2010, 2020). Decennial Census (Table DP03). 8 U.S. Census Bureau (2024). Frequently Asked Questions (FAQs) about Industry and Occupation. 9 U.S. Census Bureau (2002, 2022). OnTheMap Application and LEHD Origin-Destination Employment Statistics. https://onthemap.ces.census.gov/. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-18 The greatest number of these jobs were in the Manufacturing, Retail Trade, and Health Care & Social Assistance industries (see Chart 2.4). Chart 2.4: Total Jobs by North American Industry Classification (NAICS) Industry, City of Franklin (2020) Source: U.S. Census Bureau (2020). OnTheMap Application and LEHD Origin-Destination Employment Statistics. Households and Housing Characteristics (Appendix C.6) The number of households in the City of Franklin has grown since reaching 10,637 households in 2000. However, growth has started to slow at 12,233 households in 2010 and 13,760 households in 2020. Average household size continued to decline during this tim eframe, reaching 2.46 persons per household in 2020. This average household size was comparable to Milwaukee County (2.42 persons per household). Average Franklin family size remained similar between 2000 and 2020. In 2020, the average Franklin family was smaller than that of the County (3.02 compared to 3.24 persons per family). Shrinking household sizes in combination with projected population decline may not result in proportionally fewer households. For example, the population and number of households in Franklin both show slowed growth from 1990 to 2020 (Table 2. 1). However, the number of households shows a higher rate of growth than the population overall. This data aligns with the trend Manufacturi… Retail Trade, … Health Care and Social … Educational Services, 6%, 852 jobs Accommodation and Food Services, 6%, … Wholesale … Transportation and … Constructi… All other … Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-19 toward smaller household and family sizes. For this reason, growth in the number of small households could continue to create demand for housing units in Franklin even as the population shrinks. Table 2.1: Population and Household Changes by Decade, City of Franklin (1990 to 2020) Year Population Pop. % Change Number of Households Households % Change 1990 21,855 - 7,443 - 2000 29,494 35.0% 10,637 42.9% 2010 35,451 20.2% 12,233 15.0% 2020 36,116 1.8% 13,760 12.5% Sources: Wisconsin Department of Administration, 2010 & 202 ACS 5-Year Estimates (S1901), 1990 & 2000 U.S. Census Household income increased in both the City of Franklin and Milwaukee County since 1990. In 2020, the City of Franklin median household income was $81,321 compared to $52,260 for the County as a whole. However, increased inflation over this time period affected the buying power of these increased household incomes. According to calculations by the Bureau of Labor Statistics 10, the 1990 Franklin median household income of $43,686 had equivalent buying power of $88,459 in 2020. In contrast, the 1990 Milwaukee County median household income of $38,100 had equivalent buying power of $77,148 in 2020. This calculation indicates that the median Franklin household’s buying power remained relatively similar or increased, whereas the median County household’s buying power decreased over the same timeframe. The value of owner-occupied housing units also increased for both the City of Franklin and Milwaukee County in the last 30 years. The median value of owner -occupied units in Franklin increased from $94,300 to $262,200, which represents a value increase of around 180%. In contrast, the median value for Milwaukee County owner - occupied units only rose from $103,200 to $162,200, or a 57% increase. Most housing units in the City of Franklin were built after 1980 (65% as of 2020). In contrast, the housing stock of the County as a whole is much older, as the majority of structures were built before 1960 (58% as of 2020). The age of a community’s housing stock can have implications for housing value, construction methods, and exposure to environmental hazards. The City gained at least 5,700 new housing units between 1990 and 2020. New single-family homes and larger apartment buildings (containing 10+ units) made up the majority of these new units. Chart 2.5 shows a drop in the construction of single -family homes after around 2005 and increased multifamily construction in 2018, 10 U.S. Bureau of Labor Statistics (n.d.). CPI Inflation Calculator. https://www.bls.gov/data/inflation_calculator.htm. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-20 2019, and 2023. These spikes come from approval and construction of a few apartment complexes, including Velo Village (Ballpark Drive) and Seasons at Franklin (S. 27th Street). Chart 2.5: Housing Units Constructed in Franklin (2001 to 2024) Source: City of Franklin (2024). 2024 Housing Affordability Report, Table 2: Overall Housing Platted/Approved and Constructed. Compared to Milwaukee County, Franklin has a much smaller proportion of 2 -, 3-, or 4-unit housing structures. These types of structures are referred to as “Missing Middle Housing,” which refers to the lack of small, multiple family housing options in many communities.11 The percentage of vacant housing units in Franklin dropped from 4.1% in 1990 to 2.5% in 2020. The vacancy rates also remain lower in the City of Franklin compared to Milwaukee County, in which 8.5% of housing units were vacant in 2020. The mix of owner - and renter-occupied units in Franklin remained comparable over the last 30 years, with 78.2% of units owner -occupied in 2020. In contrast, Milwaukee County housing units were just under half owner-occupied in 2020. 11 National League of Cities (2024). What is Missing Middle Housing? https://www.nlc.org/article/2024/01/23/what-is-missing-middle-housing/. 0 50 100 150 200 250 300 350 400 Dwelling Units Constructed Single Family Multifamily (2+ unit dwelling) Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-21 TIF Districts According to the Wisconsin Department of Revenue’s Division of State and Local Finance, and the University of Wisconsin–Extension, Center for Community and Economic Development, Tax Incremental Finance, or TIF, is one of the most commonly used municipal financing vehicles and economic development tools available to local communities. TIF allows municipalities to invest in infrastru cture and other improvements, and pay for those investments by capturing property tax revenue from the newly developed property. Wisconsin’s TIF legislation was originally adopted in 1975 to help municipalities respond to the challenges of eliminating blighted areas in depressed urban areas. Subsequently, numerous significant changes were made to the TIF legislation. These changes were intended to provide greater flexibility for local governments in using TIF, and to increase the understanding of and accountability for TIFs. Examples of some of these changes which impact land use issues include: • Mixed-use development was added as another type of TIF development (the other approved types of TIF development include Blighted, Rehabilitation or Conservation, and Industrial). • Mixed-use Tax Incremental Finance Districts can include more than 25 percent vacant land. • Newly platted residential development cannot exceed 35 percent of the area of a Mixed -use Tax Incremental Finance Districts. The University of Wisconsin– Extension’s Center for Community & Economic Development indicates that the potential benefits of TIF include: • A broader tax base for the municipality; • The elimination or reduction of blighted areas; • The rehabilitation of areas declining in value; • The creation of new jobs and income; and • A partnership for economic development between the municipality, school district, technical college, and county. The University of Wisconsin–Extension’s Center for Community & Economic Development also indicates that the potential risks of TIF include: • Loss of projected revenue if the development/redevelopment does not occur as anticipated, such that if project revenues are less than expenditures, a deficit occurs that must be paid by the municipality. The City has five active Tax Incremental Finance Districts as of 20 25 (approximately 6% of the City’s area), and two TIF Districts pending review (TID #10 & #11) . The City’s 2025-2028 Economic Development Strategic Plan recommends the use of Tax Incremental Financing as an incentive tool for land development. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-22 PUBLIC PARTICIPATION Wisconsin’s Comprehensive Planning legislation, State Statute 66.1001, sets forth required procedures for adopting comprehensive plans. Those procedures include a formal public participation process (typically referred to as a public participation plan), which must be put in writing and adopted by the governing body of the local community. “The governing body of a local governmental unit shall adopt written procedures that are designed to foster public participation, including open discussion, communication programs, information services, and public meetings for which advance notice has been provided, in every stage of the preparation of a comprehensive plan.” Excerpt from Wisconsin State Statute 66.1001(4) (a) On April 21, 2026, the Common Council adopted a public participation plan with following methods: • Project Committee: The City of Franklin Plan Commission, acting as the City of Franklin Comprehensive Master Plan Update Project Committee, responsible for providing direction to, and reviewing the work of city staff as the plan proceeds. Each meeting will be open to the public and will include an agenda item for public comment. • City website : to host information on the status of the plan, as well as of copies of draft maps and chapters as they are completed. It also provides email and phone contact s to submit questions and comments, as well as the option to receive individual notices. • Open House: Arbor Day event held on Saturday May 2, 2026, at the Franklin Library parking lot, with a turnout of 60 participants. • Public Hearing: Subsequent to the Open House and the Plan Commission’s recommendation, and any resultant changes, a public hearing pursuant to State Statute’s 66.1001(4)(d), (e), and (f), to present the final draft plan and to obtain additional public comment and input, prior to consideration of adoption of the plan by the Common Council. • Additional m eeting(s): A t the discretion of the Project Committee/Plan Commission and Common Council, if needed. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-23 Next Priorities activity (2026) The 2026 update for the 2050 Comprehensive Master Plan is a partial update to only three chapters of the plan as described in Chapter 1. The Next Priorities activity is to receive public input on which chapters should be updated next. Participants were asked to pick up to two topics, results below: 1st. Comprehensive Outdoor Recreation Plan (9 votes). 2nd. Chapter 3: Agriculture, Natural and Cultural Resources (7). 3rd. Ch. 7: Transportation (4). 4th. Ch. 6: Housing (2). 5th. Chapters 8: Utilities and Communication Facilities and 10: Implementation (1 vote each). Chapters 4: Economic Development and 9: Intergovernmental Cooperation had no votes. This activity was part of the Open House at the Arbor Day event on May 2, 2026. Public Participation (2009) A series of public participation strategies were utilized throughout the planning process for the 2025 Comprehensive Master Plan adopted in 2009. These strategies included: • City-wide community survey ( provided to over 12,000 residents and business owners in July 2005, included 27 questions ranging from background information about the respondent s to how they rate the overall quality of services in the City); • A Kick-Off Meeting held in August 2005, to provide an introduction of the Comprehensive Master Plan update effort, a summary of the results of the community survey, and to conduct a design preference survey; • Constant web-site updates (copies of the surveys, minutes, agendas, draft chapters, and other pertinent information, was maintained on a separate webpage linked to the City’s website and the Planning Department’s webpage); • Nine Listening Sessions and Design Preference Surveys (conducted in September and November 2005 for each of the neighborhood planning areas , the Listening Sessions included the Design Preference Survey to obtain resident feedback on preferred types of development); • Ten Review Session meetings (two for each neighborhood planning area, conducted in two rounds, one round of meetings with each neighborhood in June 2009, to obtain public comment on the draft plan prior to completion, and a second round of meetings with each neighborhood in July 2009, to obtain public comment on the final draft plan prior to a citywide open house and a citywide public hearing); • 21 Plan Commission and 33 Project Committee meetings (all meetings of the Project Committee/Plan Commission were open to the public, and those Project Committee meetings dealing with the Plan Update included a public comment period); Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-24 • Open House (provided an opportunity for the public to ask questions about the final draft Plan of City staff and the consultant); and • Public Hearing (provided an opportunity for the public to officially comment on the final draft Plan). Design Preference Survey Results (2005) The Design Preference Survey was conducted at the neighborhood Listening Sessions held in November 2005, and consisted of the review and ranking of 78 images of different types of development. In general, it can be noted that the 475 individuals who parti cipated generally preferred suburban type development, such as: high - quality, large lot, residential development; high quality non -residential development utilizing many architectural and landscaping features of residential developments such as pitched roofs and landscaping; smaller developments and smaller buildings; significant amounts of open space/green space; curvilinear roads; and managed landscaping/parklands. Detailed results of this survey are presented in Appendix E. Community Survey (2005) A city-wide survey was conducted in July 2005 to gauge community support for existing and future development and services. The following tables provide excerpts from the survey that illustrate the most widely supported (or opposed in one instance) issues, full survey results are located in the Appendix D. Table 2.2: Single-Family Housing Issues Response Excerpts Single-Family Housing Issues Percent Respondents in Support New single-family housing preferred * 88 Compatibility with surrounding development * 88 Size and scale of home 81 Size and scale of overall development 82 Architectural quality and design * 83 Variety and appearance within subdivisions 82 Lot sizes and setbacks 80 * These questions received exceptionally high scores in the categories of “very favorable” or “very supportive.” Table 2.3: Multi-Family Housing Issues Response Excerpts Multi-Family Housing Issues Percent Respondents in Support Form of ownership * 80 Includes substantial amount of open space 75 Adds little traffic to local streets 79 Architectural quality and design 80 * These questions received exceptionally high scores in the categories of “very favorable” or “very supportive.” Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-25 Table 2.4: Community Facilities and Open Spaces Response Excerpt Community Facility and Open Space Issues Percent Respondents in Support The city should provide neighborhood parks, playgrounds, and recreational facilities 74 Table 2.5: Public Policies and Community Information Community Survey Response Excerpts Public Policy and Community Information Issues Percent Respondents in Support Very satisfied or satisfied with residential neighborhood quality 94 Very satisfied or satisfied with shopping convenience and variety 71 Very satisfied or satisfied with road maintenance 74 Very satisfied or satisfied with police service 85 Very satisfied or satisfied with fire and emergency service 82 Table 2.6: Infrastructure Response Excerpt INFRASTRUCTURE PERCENT RESPONDENTS OPPOSED Sidewalks on all residential streets 74 PLANNING AREAS: ISSUES AND PREFERENCES During the initial public involvement phase for the 2009 Comprehensive Master Plan, a Design Preference Survey and Listening Session was conducted with all nine planning areas (see Chapter 5, Map 5.4). Th ese events allowed residents and property owners to express critical issues for each planning area. The following section summarizes key priorities identified by the public and incorporated into the Comprehensive Master Plan. The nine Listening Sessions were conducted between September 19th and November 22nd, 2005. Appendix E organizes the issues or neighborhood specific concerns by planning area. Neighborhood Identities and Preservation of “Franklin” Character • Support for neighborhood-scale planning to maintain each area’s individual character • Strong support for preserving rural and open character in the west and southwest of Franklin • Comments supporting St. Martins area's historic preservation and rehabilitation Natural Resources and Recreation • Many comments in favor of preserving and restoring natural resource areas • Concern about losing green space and wetlands to development • Comments in favor of preserving open and rural space • Comments supporting City land purchases to permanently protect natural resource areas Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-26 • Support for recreation and trails that connect natural resource areas Sidewalks, Paths, and Trails • Many comments in support of sidewalks or multi-use paths for walking and biking • Residents supported trails and paths along busy corridors to improve road safety • Support for neighborhood connections and using paths to access commercial and civic uses • Support for paths and trails to connect parks and for recreation • Some residents had concerns about maintenance and upkeep of sidewalks Streets and Traffic • Many comments concerned about traffic speed and safety, especially in neighborhoods • Conversations about what types of road design is appropriate for neighborhoods • Support for short, connected streets within neighborhoods • Comments in favor of limiting long cul-de-sacs, but also for limiting new road impacts on natural resources Balance of Land Uses • Support for buffers between land uses of different intensities, such as residential and industrial • Comments support maintaining open space as the City develops • Questions about the balance of industrial space available and the level of demand • Comments supporting increased multifamily development to increase housing affordability • Concerns about multifamily development being an appropriate density Retail and Commercial Development • Comments supporting small scale commercial development • Support for retail along major streets • Desire for high-quality/high-end retail in Franklin • Residents were divided about increased retail presence in more rural parts of the City. Some value preserving open space and are more willing to drive Services and Utilities • Some concerns about how improvements and new development will impact the tax base • Concerns about access to sanitary sewer, cable, and high-speed internet service in the southwest • Comments about how population changes will impact schools and school locations Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-27 • Concerns about the future of the landfill and potential expansion CITYWIDE PRINCIPLES, GOALS AND OBJECTIVES This Plan sets forth a number of principles, goals, objectives, policies, programs, recommendations, and suggestions based upon the input of citizens, officials, and staff. All of these guidelines incorporate or support the frequently expressed desire of residents to retain the City of Franklin’s character. This includes maintaining a mix of urban, suburban, and rural areas, protecting and preserving important natural resource features, and ensuring high quality development. This chapter sets forth the principles, goals and objectives of this Plan, however, the specific policies, programs, recommendations and suggestions of this Plan are set forth in the specific chapter to which they most pertain. This chapter also identifies the City of Franklin ’s Vision Statement and Mission Statement which are consistent with and are incorporated into this Plan. Lastly, the over -riding principles of this Plan, including those of Balanced Development, High Quality Development, Preserve Rural/Suburban Community Character, as well as the information contained in the City’s Vision and Mission Statements and the various chapters of this City of Franklin Comprehensive Master Plan, are also identified in this Chapter. Vision Statement and Mission Statement The City of Franklin’s Vision Statement and Mission Statement (created in 2004 with the assistance of MSA Professional Services, Inc.), are an important part of this Plan. They will also be used to help guide the implementation of this Comprehensive Master Plan. The Vision Statement and Mission Statement are set forth below. Vision Statement: The City of Franklin's vision is to enhance the quality of life for present and future generations by providing economic growth through the highest quality of residential, recreational, and business development in Southeastern Wisconsin. Mission Statement: The City of Franklin's mission is to be a well- planned model community providing for a high quality of life for residents of all ages. The future of Franklin is founded on quality development that includes smaller and mixed -use commercial centers and co rridors, that provides for new office parks that attract knowledge-workers and information industries to the community, while continuing to develop and maintain quality residential areas that provide a wide range of housing opportunities to support the needs of working professionals, seniors, and families. The residents of Franklin will have access to parks, open space, and a wide range of recreational programs and facilities that help to promote an active and healthy lifestyle. Franklin will be a community where modern conveniences, friendly people, and a small town atmosphere combine with low Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-28 crime, a clean environment, and quality educational opportunities to make Franklin the primary destination to live and learn, work and play, and to do business. Principles The following principles describe the overall guiding elements of the City of Franklin Comprehensive Master Plan. They are obtained from a variety of sources, ranging from adopted plans or policies, to commonly expressed desires of City residents and officials. These principles are also large picture and long-range statements intended to guide implementation of this Plan. Balanced Development The opinions of the residen ts and property owners indicate a strong desire for the City of Franklin to permit growth while protecting the natural resource features and high-quality suburban character that currently exists. Survey results and public comment support large -lot residential development, small- scale commercial development, and preservation of natural resource features. R esidents appear to desire additional housing . The City, however, has set a goal of lower ing the tax-rate by achieving a 70 percent residential and 30 percent non-residential tax base as the City continues to grow 12. This is the percentage that contributes to the overall tax base, not percentage of land area in the City. In 2024, residential tax base was approximately 75 percent, and the non-residential tax base was 25 percent, while the residential tax base was 72 percent in 2010 13. It’s worth noting that the ratio of land devoted to residential uses compared to non -residential (commercial and industrials) was 74 percent, very similar to the tax base ratio. In 2024, the City had 5,137 acres of residential use and 1,762 acres of commercial and industrial. A significant challenge for the Comprehensive Master Plan is how to achieve a development balance with an appropriate 70/30 tax base goal, a balance which addresses both economic and social values. This plan should consider the impact of a future population decrease to achieve this goal, per projections by the Wisconsin Department of Administration, the City’s population is expected to decrease from 36,116 persons in 2020 to 32,299 persons by 2050. 12 The Common Council, at their June 29, 2005 special meeting, approved a motion “[T]hat it remain a goal of the Common Council to obtain the 70/30 ratio of residential to commercial assessed valuation. 13 City of Franklin Assessed Values by Property Class. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-29 The 2009 Comprehensive Master Plan identified the following challenges to achieve a balanced development, particularly from the standpoint of non-residential development: • resistance by residents to adjacent development proposals containing different land uses or land use densities; • local and regional market factors which often encourage residential development over non-residential development; • a relative shortage within the City of large vacant developable parcels with available public services such as public sanitary sewer and water service; and • a lack of local examples of innovative development techniques. For this update, planning staff identifies the following trends and challenges to achieve a balanced development: • the shift towards teleworking after the COVID-19 pandemic reduces demand for office space. • the shortage of non -residential vacant developable parcels identified in the 2009 plan has been reduced by new developments such as the Franklin Corporate Park (2016) and Ryan Meadows (2019). High Quality Development The Comprehensive Master Plan recommends a guiding principle of High Quality Development, regardless of use. The City’s priority will be to allow various types of development that also move the City toward a balanced and sustainable tax burden . The attainment of high quality development will be an important factor in the consideration of all development proposals. The Plan will address minimum residential densities, appropriate lot sizes, and housing types that can help to achieve this goal. High quality non -residential development will also be strongly encouraged. Achieving balanced, high quality development is not as simple as it might sound. It is not a regulation that can be applied across the City. Development proposals need to be evaluated on a case -by-case basis as to their impact on the community. However, as a strategy or goal, one which is to be continuously striven towards, is a not uncommon theme in many local comprehensive plans, and is one that was part of the Community Character Objective in the 1992 City of Franklin Comprehensive Master Plan. The term “High Quality” and similar phrases have been used in a number of city documents over the years, including: “Franklin First, Strategies to Bring Balance to Franklin’s Tax Base, The City of Franklin Economic Development Strategic Plan” (March 2000); “Franklin First Development Plan: Site Planning, Preliminary Engineering, Feasibility Analysis, and Financial Analysis for the City of Franklin” (October 2001); and the City’s adopted Mission Statement and Vision Statement (April 2009). In addition, “Hig h Quality” has become a commonly used phrase during conversations about the City’s development review efforts. It is also part of the Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-30 direction and guidance obtained from the public during the Design Preference Survey and Listening Sessions. For these reasons, the term “High Quality” is referenced numerous times throughout this Comprehensive Master Plan. During preparation of the draft of t he 2009 C omprehensive Master Plan, the City of Franklin Comprehensive Master Plan Update Project Committee determined that a commonly agreed upon definition of the term “High Quality” would be of great benefit to this Comprehensive Master Plan and to the City’s future planning and development review efforts. That definition is set forth below. First and foremost, the term “High Quality” as used in this Plan is intended to be fully consistent with similar terms and phrases as contained in the adopted City of Franklin Mission Statement and City of Franklin Vision Statement, as those Statements may be revised from time to time. Secondly, the term “High Quality” as used in this Plan incorporates a high degree of flexibility, which can be expressed both spatially and chronologically. More simply, this means that “High Quality” takes into account the situation it is being applied to, both from the standpoint of location (such that the physical expression of High Quality in one type of land use or zoning district need not be the same as the expression of High Quality in a different land use or zoning district) as well as from the standpoint of time (such that the physical expression of High Quality in an older established neighborhood or development need not be the same as the physical expression of High Quality in a future neighborhood or development). To help clarify this point, the following concepts are also part of the definition of “High Quality”. • Context Sensitivity. This consists of a commitment to meaningful stakeholder participation, and consideration of preserving and enhancing scenic, aesthetic, architectural, historic, community, and environmental resources of the subject area, all while maintaining or improving safety, mobility, and infrastructure conditions. • Design Standards. This consists of consistency with all applicable landscape, architecture, parking, site layout, and other similar design standards of the City of Franklin. • Sustainable Strategies. This consists of the consideration in a holistic manner of such principles, strategies, and ideas as: o Fair, cost effective, and predictable development decisions; o A range of housing, employment, and transportation choices; o Strengthening existing neighborhoods; o Preserving valuable natural resources, parks, and open spaces; o Creating safe, attractive, and inviting environments; o Fostering distinctive communities with a strong sense of place; Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-31 o Efficient use of existing public infrastructure and services; and o Green building, green infrastructure, energy efficiency, etc. practices, such as those found in the LEED for Neighborhood Development Rating System. o Promote Universal Design, which is defined by Ron Mace and the Universal Design project as, “ Design that is usable by all people to the greatest extent possible without the need for adaptation or specialized design.” This concept emphasizes that design can be used to reduce the amount of conflict between all people and the built environment. ” For example, accessible parking, level access from sidewalks and zero-entry thresholds. Lastly, the term “High Quality” does not mean excessive regulation or control. For instance, repetition of architecture or use, when not in conflict with any of the other elements of the definition of High Quality, is permissible. Agricultural, Natural and Cultural Resources Principle As stated in elsewhere in Chapter 2, and in Chapter 3, preserving the rural/suburban character while at the same time encouraging growth and development, generates competition between the need to preserve historic and natural resources and the need to acco mmodate residential, business, and industrial development. Therefore, enhancing and preserving the essential components of Franklin ’s urban, suburban, and rural characteristics will be considered in the formulation of the action and strategies of this Comprehensive Master Plan. Economic Development Principles • Promote a high-quality community for residents and businesses alike; create jobs; and • Stabilize and expand a diverse tax base. Land Use Principles • Enhance the quality of life for present and future generations by providing economic growth through the highest quality of residential, recreational, and business development in Southeastern Wisconsin; • Encourage quality development that includes smaller and mixed-use commercial centers and corridors, and provides for business parks that attract knowledge -workers and information industries to the community, while continuing to develop and maintain quality residential areas that provide a wide range of housing opportunities to support the needs of working professionals, seniors, and families; • Permit sustainable growth while protecting the natural resource features and high -quality suburban character of the City; • Allow for various types of development, while giving appropriate consideration to the impact of new development on the local property tax burden; and Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-32 • Utilize the Land Use chapter as the principle means to integrate and ensure consistency between all of the other elements of this Comprehensive Master Plan. Housing Principles • Provide a wide range of housing opportunities to support the needs of working professionals, seniors, and families; • Coordinate the housing principles, goals, objectives, and policies with the other elements of the Comprehensive Master Plan; and • Promote high quality development to allow for various types of development while giving appropriate consideration to the impact of new development on the local property tax burden. Transporation Principles • Create a safe and efficient transportation network that is integrated into the regional transportation system; • Provide viable options for travel through multiple modes including driving, transit, walking, and bicycling; and • Serve the needs of City residents with limited access to transportation, including the young, elderly, and people with disabilities. Utility and Community Facilities Principle • Provide City residents access to parks, open space, and a wide range of recreational programs and facilities that help to promote an active and healthy lifestyle; and • Make Franklin a community of modern conveniences while maintaining a small town atmosphere combined with low crime, a clean environment, and quality educational opportunities to make Franklin the primary destination to live and learn, work and play, and to do business. • Maintain a balance between the level of service provided by the City and the tax base required to sustain it. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-33 Goals and Objectives The goals and objectives of the City of Franklin are statements identifying the City’s priorities and intentions with respect to land use and development. Public input, the City’s Vision Statement and Mission Statement, and the above principles inform the plan’s goals. The goals are presented as statements of conditions intended to be maintained or achieved. Objectives are statements of actions to be taken in order to achieve the goal. They are the basis for specific policies and recommendations throughout the Comprehensive Master Plan. In addition, each goal also notes which chapter should be consulted for more information on that topic. The following is a selection of the Comprehensive Master Plan goals listed by chapter, while the related objectives are listed below each goal. Each chapter contains a full list of goals and objectives on their respective topics. Chapter 2: Issues & Opportunities Preserve and enhance the City’s community character by creating policies to shape community and development. • Protect the City’s remaining natural resource features. • Promote high quality development that contributes to the City’s tax base and helps to lower the City tax rate. • Limit the expansion of the landfill and buffer it to maintain property values in the surrounding area. • Allow existing agriculture land to remain in farming production until alternative long-term uses are identified and come to fruition. • Monitor and respond to demographic trends including age and population projections. Create policies and programs that promote stability for residents, businesses, and the City. Chapter 3: Agriculture, Natural & Cultural Resources Protect environmental resources. • Discourage incompatible development and alteration of floodplains, lakes, rivers and streams, wetlands, shorelands, steep slopes, and woodland areas so as to preserve the integrity of these resources and to promote the ecological value of these assets, and to minimize adverse impacts upon adjacent properties. • Control and minimize development within the Southeastern Wisconsin Regional Planning Commission’s delineated Environmental Corridors and Isolated Natural Resource Areas to protect, preserve, and enhance those natural resource features contained within, to maintain the natural beauty of the City, to balance these with the development rights of the underlying existing and planned zoning, and to minimize adverse impacts to surrounding properties. Provide park and recreation areas throughout the City as identified in the Comprehensive Outdoor Recreation Plan. • Preserve existing parks, recreation areas, and recreational opportunities. • Create a city-wide trail system for pedestrians and bicyclists. • Identify opportunities for new neighborhood parks and city parks. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-34 • Create links to other natural areas in the City when developing park areas. • Identify potential funding mechanisms for the development and maintenance of parks, recreation facilities, and programs. • Work with MMSD and non-profit agencies to purchase/protect conservation sites. • Continue to update the Comprehensive Outdoor Recreation Plan to maintain the City’s eligibility to apply for State Stewardship Program grants. Protect natural resources to a greater extent, and agricultural and cultural resources to a lesser extent. • Protect natural, and to a lesser extent agricultural and cultural resources , to achieve many purposes, including: control erosion and sedimentation; promote and maintain the natural beauty of the City; sustain a high quality and interconnected natural resource network throughout the City; serve as buffers between different land us es and land use densities; and serve as locations for existing and future parks, outdoor recreation sites, and trails. Chapter 4: Economic Development Pursue and achieve business attraction, retention, and expansion. 70/30 Goal. • Strive toward a 70/30 ratio of residential to commercial assessed valuation. Balanced Development. • Promote business development to enhance the tax base while promoting residential development to meet citizen demands for housing. High quality and high value development. • Allow for various types of development, as long as the value provides a high increment to the City, thereby helping to decrease the tax burden. Expand and stabilize the current economic base. Create jobs. • Create a range of employment opportunities. Redevelop lands with existing infrastructure and public services and maintain and rehabilitate existing residential, commercial, and industrial structures. • Leverage added value from past investments and to restrict negative impacts on the City’s economic base. Decrease homeowners tax burden through quality non-residential development. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-35 Chapter 5: Land Use Encourage land uses, densities, and regulations that promote efficient development patterns and relatively low municipal and utility costs. Foster community identity in the built environment at the street, neighborhood, and community scale. • Revitalize main streets, special districts, and areas of historic/cultural importance , such as the St. Martin’s area the S. 27th Street Corridor. • Create and enforce design standards that are appropriate for different types and scales of development. • Prepare and update area plans to maintain the character of neighborhoods and to guide new development where it is appropriate. Encourage high quality commercial development in appropriate locations. • Accommodate (where appropriate) high quality neighborhood -scale commercial development compatible with adjacent uses, and consistent with the capacity of the City’s infrastructure. • Require site plan approval for all new development and redevelopment. Encourage compatible uses, such as high quality non-residential development next to residential development, and/or by providing appropriate buffers between them. • Direct retail centers and other high -intensity and community and regional scale commercial development, other than those specifically identified in the Land Use Plan, to major traffic arterials. • Encourage the use of natural resources as visual and physical amenities for development and as buffers between different developments. • Establish a program that identifies unique natural areas to be preserved through natural resource protection and land banking. Accommodate (where appropriate) mixed-use development within identified districts and commercial areas. • Provide for mixed-use buildings to include housing within identified districts and commercial corridors. • Identify location(s) that will support a “village center” development with quality retail, residential, institutional, and/or recreational uses. • Include public open space within, and adjacent to, mixed-use developments. • Establish architectural, landscape and site development standards for mixed -use development that improves the value of the properties. Encourage redevelopment of public and private property in accord with all pertinent principles, goals, objectives, and policies set forth in this Plan. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-36 Chapter 6: Housing Encourage high quality residential development in the City. • Strive towards high quality residential development, in appropriate underdeveloped and undeveloped areas, that does not increase the local tax burden. Ensure compatibility with adjacent land uses. • Encourage infill residential development in appropriate areas that are currently adjacent to residential uses. • Require new residential development to be compatible with surrounding land uses and densities whenever possible and appropriate. • Maintain housing in a good condition shall be a priority in existing neighborhoods. • Enforce code provisions to sustain a high level of home maintenance and to preserve the existing housing stock. Provide adequate location and choice of housing and a variety of housing types for varying age and income groups for different size households. • Ensure an adequate choice in size, cost, and location of housing units to assure equal housing opportunities. • Allow for a variety of residential types and densities within the requirements for high quality development and compatibility with adjacent uses, wherever possible and appropriate. • Manage the development of multi-family housing to prevent a future surplus of this housing type. • Manage the development of senior housing to prevent a future surplus of this housing type. Chapter 7: Transportation Ensure the safe and efficient operation of the transportation system within Franklin. • Monitor traffic and safety data to identify issues of concern as they arise. • Continue maintenance of the transportation infrastructure to ensure its design functionality. • Plan for future transportation infrastructure improvements to serve changes in demand or newly developing parts of the City. • Address transportation safety through engineering, education, and enforcement. • Link residential areas together, whenever possible, with vehicular and pedestrian circulation systems. • Minimize the use of cul- de-sacs except where needed to preserve the natural environment and to access land where other options are unavailable. • Protect the traffic-carrying capacity of existing and proposed arterial streets, highways, and collector streets. Provide an interconnected network of major and minor arterial roads. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-37 Establish a network of interconnected collector roads and local streets providing access from private land to arterial roads. Maintain a network of roadways that supports the movement of freight by truck. Consider alternative design approaches where appropriate. Support regional efforts to expand commuter rail options and preserve access to freight rail services. Enforce provisions of Franklin's Airport Overlay District that mitigate airport noise impacts. Provide appropriate facilities to encourage recreational and commuter bicycle trips. Develop a system of sidewalks and paths that links neighborhoods to active destinations. Support the continuation and expansion of regional transit services. Provide transportation options for individuals with disabilities and those who cannot drive. Chapter 8: Utilities & Community Facilities Continue to provide City residents with high-quality, efficient services, utilities and community facilities. • Regularly review service levels and demand to ensure the provision of the best services possible. • Develop a phased plan for the extension of sewer and water services that can be used to prioritize the City investments and to leverage the actions and investments of MMSD and surrounding communities. • Encourage upgrade of the internet and cable services in the southern part of the City to provide an improved service for existing residents and a competitive market for future development. • Support efforts to develop a Community Center. • Work with the school districts to identify the needs and locations for new facilities. • Determine future Police Department staff levels to determine the need for and location of new facilities. Provide adequate infrastructure and public services to meet existing and future conditions. • Upgrade and expand City (and joint) services, utilities and community facilities as necessary to meet demand. Provide the fire protection facilities necessary to maintain high quality fire protection throughout the City. • Determine future Fire Department and Emergency Service Department staff levels to determine the need for and location of new facilities. Retain a refined sanitary sewer service area that is in conformance with both the adopted area wide water quality management plan and this Plan. Establish cooperative planning with surrounding communities. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 3rd Draft (August 2026) 2-38 • Continue cooperative planning with surrounding communities, Milwaukee County, MMSD, and the school districts. Chapter 9: Intergovernmental Cooperation Encourage coordination and cooperation among nearby units of government. • Continue efforts to establish and maintain existing joint services and identify new opportunities for joint services with adjacent communities, school districts, the Milwaukee Metropolitan Sewerage District, civic organizations, etc. When deemed in the best interest of the City of Franklin by the Common Council, the City may pursue annexation of lands located within unincorporated areas and within its extraterritorial plat jurisdiction area. • Pursuant to Wisconsin State Statutes 66.23 and 236.10, as may be amended, the City shall endeavor to review and consider all subdivision plats, certified survey maps, and other planning related matters concerning those lands located within the City’s extraterritorial jurisdiction. Cha pter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive M aster Plan (2009) CHAPTER 3: AGRICULTURAL, NATURAL AND CULTURAL RESOURCES TABLE OF CONTENTS INTR ODUCTION ............................................................................................................................................................ 1 GUIDING PRINCIPLE, GOALS AND OBJECTIVES ..................................................................................................... 2 Principle ................................................................................................................................................................ 3 Goals..................................................................................................................................................................... 3 Objectives ............................................................................................................................................................. 4 INVENTORY AND ANALYSIS ..................................................................................................................................... 5 Introduction .......................................................................................................................................................... 5 Establishing Protection Priorities ........................................................................................................................ 6 FINDINGS ............................................................................................................................................................... 11 Agricultural Resources....................................................................................................................................... 11 Natural Resources ............................................................................................................................................. 15 Cultural Resources ............................................................................................................................................ 33 Issues ................................................................................................................................................................. 39 Cultural Resources Recommendations ............................................................................................................ 42 PLANNING AREA ISSUES ....................................................................................................................................... 43 Planning Area A .................................................................................................................................................. 44 Planning Area B ................................................................................................................................................. 45 Planning Area C .................................................................................................................................................. 46 Cha pter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive M aster Plan (2009) Planning Area D ................................................................................................................................................. 47 Planning Area E .................................................................................................................................................. 48 Planning Area F .................................................................................................................................................. 49 Planning Area G ................................................................................................................................................. 50 Planning Area H ................................................................................................................................................. 51 Planning Area I ................................................................................................................................................... 54 COMMUNICATING THE SENSIBLE DEVELOPMENT MESSAGE ............................................................................ 55 Conservation Subdivision Ordinance ................................................................................................................ 55 Greenways .......................................................................................................................................................... 57 SUMMARY OF RECOMMENDATIONS AND SUGGESTIONS .................................................................................. 58 Recommendations ............................................................................................................................................ 59 Suggestions ........................................................................................................................................................ 60 DEFINITIONS .......................................................................................................................................................... 61 REFERENCES ......................................................................................................................................................... 62 Local Reports Used: ........................................................................................................................................... 62 Maps Used for Field Assessment: .................................................................................................................... 63 FIGURES Map 3.1: Linkages ....................................................................................................................................................... 8 Map 3.2: Agricultural Lands ...................................................................................................................................... 12 Map 3.3: Hydric Soils................................................................................................................................................. 13 Cha pter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive M aster Plan (2009) Map 3.4: Natural Resources ..................................................................................................................................... 17 Map 3.5: Soils ........................................................................................................................................................... 19 Map 3.6: Soils Unsuitable for Development ............................................................................................................ 19 Map 3.7: Steep Slopes .............................................................................................................................................. 22 Map 3.8: Elevation..................................................................................................................................................... 23 Map 3.9: Groundwater Recharge Areas ................................................................................................................... 25 Map 3.10: Floodplain Map ........................................................................................................................................ 29 Map 3.11: Wildlife Habitat Areas .............................................................................................................................. 32 Tab le 3.1: Basic Ecological Principles for Establishing Linkages ............................................................................. 7 Table 3.2: Designated Landmarks within the City of Franklin ................................................................................ 36 Table 3.3: Milwaukee County Park Sites within the City of Franklin....................................................................... 37 Table 3.4: City of Franklin Park, Recreation, and Open Space Sites ..................................................................... 38 Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-1 CHAPTER 3: AGRICULTURAL, NATURAL AND CULTURAL RESOURCES INTRODUCTION This chapter of the Comprehensive Master Plan contains information about the agricultural, natural, and cultural resources within the City of Franklin. It is intended to establish the factual basis for the recommendations and suggestions to protect these important City resources. Chapter 2 states that the agricultural, natural, and cultural resources of Franklin contribute significantly to defining the community’s urban, suburban and ru ral character. Chapter 2 also states that community character is very important to the citizens who participated in the two surveys undertaken in 2005 as part of this planning effort. This chapter contains goals, objectives, policies and programs that embrace the principle that maintaining the character of the community is considerably dependent upon the preservation and conservation of the City’s agricultural, natural and cultural resources. The health, safety and welfare of the community are also depen dent upon the preservation and wise use of its agricultural, natural and cultural resources. The private market often does not adequately consider or allocate the costs to protect these resources. This typically compels the government —in this case, the City of Franklin — to use its police powers to set policy to protect the public’s health, safety, and welfare. As stated within the demographic profile of Chapter 2, Franklin’s population is growing rapidly. However, much of the land in Franklin remains unde veloped. The undeveloped lands in Franklin range from natural areas such as woodlands, steep slopes, lakes, ponds, streams, shore buffers, floodplain, wetlands, and prairie remnants, to active agricultural lands, fallow fields and hedgerows. According to, A Regional Land Use Plan For Southeastern Wisconsin: 2035 , the City of Franklin is the only community in Milwaukee County with lands identified as prime agricultural under the Wisconsin Farmland Preservation Program (SEWRPC 2006). This chapter will identify and inventory by Planning Area agricultural, natural, and cultural resources and establish corresponding protection priorities. It will also provide recommendations to achieve a balance between resource protection and preservation, and future development. A glossary of definitions and references are also included at the end of this chapter. Wisconsin’s Comprehensive Planning Legislation recognizes how important this subject is as it has identified agricultural, natural and cultural resources as one of the nine required elements of comprehensive plans. The law also requires that this element not be prepared in isolation, but rather, be part of a greater whole, such that this element supports and is consistent with all of the other elements of a comprehensive master plan. Section 66.1001(2)(e) of the Wisconsin Statutes provides that this agricultural, natural and cultural resources element shall be: Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-2 “A compilation of objectives, policies, goals, maps and programs for the conservation, and promotion of t he effective management, of natural resources such as groundwater, forests, productive agricultural areas, environmentally sensitive areas, threatened and endangered species, stream corridors, surface water, floodplains, wetlands, wildlife habitat, metallic and nonmetallic mineral resources consistent with zoning limitations under s. 295.20(2), parks, open spaces, historical and cultural resources, community design, recreational resources and other natural resources.” GUIDING PRINCIPLE, GOALS AND OBJECTIVES “A compilation of objectives, policies, goals…for the conservation, and promotion of the effective management, of natural resources…” [excerpt from Wisconsin State Statute 66.1001(2)(e)] The principles, goals, objectives, policies and programs set forth in this chapter will guide the City of Franklin’s agricultural, natural and cultural resources activities as they relate to official mapping, subdivision regulation and zoning. Any principles, goals, objectives, policies, programs and related recommendati ons and suggestions pertaining to issues other than official mapping, subdivision regulation and zoning are not intended to create any further allowances or restrictions by the Comprehensive Master Plan or to create any additional conditions or requirements of the Comprehensive Master Plan. However, should any such recommendation or suggestion propose, and the Common Council concur, that changes to the Comprehensive Master Plan are warranted, any such changes would then be made to the Comprehensive Master Plan through the formal amendment process to ensure an appropriate level of consistency between the recommendation and this Plan. The City of Franklin has a long history of natural resources protection. Most of the City’s prior planning studies listed in Chapter 2 addressed the importance of natural resource protection. The 1992 Comprehensive Master Plan, and subsequent amendments (2004), state the protection of the City’s remaining natural resources is an important objective. More recently, the South 27th Street Corridor Plan (2004) identified specific areas to be preserved within the corridor . During the Planning Area Kick -off Meetings in 2005, residents expressed concern about natural resource loss and considered environmental protection to be a high priority. Important principles, goals and objectives pertaining to natural resource protection, as well as to a lesser extent agricultural and cultural resource protection are included in Chapter 2. These same resource protection Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-3 concepts have been inclu ded within other planning documents previously prepared by the City or by other organizations. It is intended that the principle, goals and objectives, as set forth below, guide the recommendations and suggestions of this chapter . In addition, the Natural Resource Base Protection Objective, Principles, and Standards, and the Open Space Preservation/Protection Objective, Principles, and Standards set forth in the 1992 City of Franklin Comprehensive Master Plan are hereby incorporated by reference into this Plan for general reference purposes (see pages 6 -13 through 6 -17 of the 1992 Comprehensive Master Plan for this information). Principle • Preserving the rural /suburban community character while at the same time encouraging growth and development generates competition between the need to preserve historic and natural resources and the need to accommodate residential, business and industrial development. Therefore, enhancing and preserving the essential components of Franklin’s urban, suburban and rural characteristics will be considered in the formulation of the action and strategies of this Comprehensive Master Plan. [from Chapter 2, Community Character] Goals • The residents of Franklin will have access to parks, open space, and a wide range of recreational programs and facilities that help to promote an active and healthy lifestyle. [from Chapter 2, Mission Statement] • The residents and property owners have indicated a strong desire for the City of Franklin to permit growth while protecting the natural resou rce features and high -quality suburban character that currently exists. [from Chapter 2, Balanced Development] • The protection of natural, and to a lesser extent agricultural and cultural resources, is intended to achieve many purposes, including: C ontrol erosion and sedimentation; promote and maintain the natural beauty of the City; retain as much as possible the rural/suburban character of the City; sustain a high quality and interconnected natural resource network throughout the City; serve as buffers between different land uses and land use densities; and serve as locations for existing and future parks, outdoor recreation sites, and trails. [from Pre-Sanitary Sewer, Land Use/Zoning, Land Division, and Public Services Policy] • Preserve and enhance the City’s community character, including individual planning area identities, while directing growth and development. [from public input and the 1992 Comprehensive Master Plan] • Protect environmental resources. [from public input and the 1992 Comprehensive Master Plan] Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-4 • Provide park and recreation areas throughout the City as identified in the Comprehensive Outdoor Recreation Plan. [from public input and the 2002 Comprehensive Outdoor Recreation Plan] Objectives • Protect the City’s remaining natural resource features. [from public input and the 1992 Comprehensive Master Plan] • Allow existing agricultural land to remain in farming production until alternative long -term uses are identified and come to fruition. [from public input] • Discourage incompatible development and alteration of floodplains, lakes, rivers and streams, wetlands, shorelands, steep slopes, and woodland areas so as to preserve the integrity of these resources and to promote the ecological value of these assets, and to minimize adverse impacts upon adjacent properties. [from public input and the 1992 Comprehensive Master Plan] • Control and minimize development within the Southeastern Wisconsin Regional Planning Commission’s delineated Environmental Corridors and Isolated Natural Resource Areas to p rotect, preserve, and enhance those natural resource features contained within, to maintain the natural beauty of the City, to balance these with the development rights of the underlying existing and planned zoning, and to minimize adverse impacts to surrounding properties. [from public input and the 1992 Comprehensive Master Plan] • Preserve existing parks, recreation areas, and recreational opportunities. [from public input, the 1992 Comprehensive Master Plan, and the 2002 Comprehensive Outdoor Recreation Plan] • Create a city -wide trail system for pedestrian and bicyclists. [from public input, the 1992 Comprehensive Master Plan, and the 2002 Comprehensive Outdoor Recreation Plan] • Identify opportunities for new neighborhood parks and city parks. [from public input, the 1992 Comprehensive Master Plan, and the 2002 Comprehensive Outdoor Recreation Plan] • Create links to other natural areas in the City when developing park areas. [from public input, the 1992 Comprehensive Master Plan, and the 2002 Comprehensive Outdoor Recreation Plan] • Identify potential funding mechanisms for the development and maintenance of parks, recreation facilities, and programs. [from public input and the 2002 Comprehensive Outdoor Recreation Plan] Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-5 • Work with MMSD and non -profit organizations to purchase/protect conservation sites. [from public input] • Continue to update the Comprehensive Outdoor Recreation Plan to maintain the City’s eligibility to apply for State Stewardship Program grants. [from public input and the 2002 Comprehensive Outdoor Recreation Plan] INVENTORY AND ANALYSIS “A compilation of…maps and programs for the conservation, and promotion of the effective management, of natural resources such as groundwater, forests, productive agricultural areas, environmentally sensitive areas, threatened and endangered species, stream corridors, surface water, floodplains, wetlands, wildlife habitat, metallic and nonmetallic mineral resources consistent with zoning limitations under s. 295.20(2), parks, open spaces, historical and cultural resources, community design, recreational resources and other natural resources.” [excerpt from Wisconsin State Statute 66.1001(2)(e)] Introduction For the purpose of updating the Comprehensive Master Plan, an assessment of existing agricultural and natural resources in Franklin was conducted in 2005 and 2006. In order to thoroughly and accurately map remaining resources, a three-fold approach was followed: • A comprehensive review of available maps and information (hardcopy and digital formats); • Field surveys to verify and update the available maps and information; and • Collection of information and knowledge about remaining natural resources from discussions with area residents, landowners, representatives of the Franklin Environmental Commission, and City staff. This approach differs from other c omprehensive master plans in that both qualitative (e.g., map review) and quantitative data (e.g., field inventories) were collected. Because the City of Franklin considers natural/agricultural resource protection a priority, it was important to conduct on-the-ground field surveys using updated maps. Many maps and local reports were used, and are listed in the references section at the end of this chapter. The field surveys took place throughout the summer and fall of 2005 and 2006. Each undeveloped and partially developed parcel in each planning area was assessed by windshield surveys and/or by foot, if accessible. Inaccessible features were assessed using binoculars from the road, or by obtaining information Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-6 from landowners and City staff. Field sketches of natural resources and agricultural fields were made on year 2000 and 2005 aerial photographs, and representative photographs were taken. Data collected during the field assessments included descriptive information and the general condition of each resource (Appendix F, such as resources present (e.g., cattail marsh , mature woodland, etc.), general size and habitat value, dominant vegetation, degree of connectivity to other natural resources, rarity, restoration potential and potential linkages , etc. This data was later imported into an Arc View GIS database for creating Natural Resource maps by planning area. The field sketches were digitized on Year 2000 ortho photographs using ArcGIS 9.0. Habitat type classification followed Curtis’ Vegetation of Wisconsin (1968) and Eggers and Reed’s Wetland Plant Communities of Minnesota and Wisconsin (1997). Once draft natural resource maps were generated for each planning area, each map was presented and discussed with the City of Franklin’s Environmental Commission. Several naturalists on the Commission contributed their valuable knowledge about certain features, or areas of the City, which helped to increase map accuracy. Establishing Protection Priorities Protecting remaining agricultural, natural, and cultural resources while also allowing for sensible development is a challenge for Franklin. On one hand, hydric soil characteristics and federal and state laws, make wetlands difficult to develop, and therefore often easier to protect. On the other hand, upland woods often have few soil limitations and few regulatory restrictions, and therefore are often more difficult to protect . After completion of the field assessment and mapping, the information was integrated to identify areas of high resource value. Areas that received medium to high rankings for their floristic quality, rarity, connectivity or habitat value were classified as high priority protection areas. Lands designated by the Southeastern Wisconsin Regional Planning Commission as primary environmental corridor, secondary environmental corridor, or isolated natural resource area (definitions provided in glossary) were also classified as high priority protection areas. Other criteria considered were known S tate or F ederal rare and/or endangered species habitats, size, restoration potential, location within floodplains, and capacity to buffer nearby streams or tributaries. Sites that were identified as a high priority for protection were mapped and are individually addressed by planning area later in this chapter. Linking Protection Priorities Separate from the larger environmental corridors noted above are isolated patches of natural resources which vary in habitat type, quality, and size . Isolated patches of habitat limit wildlife movement and in many cases are less sustainable . If aggressive non -native species are not yet present, establishing physical links to isolated patches of natural resources can provide the potential to encourage wildlife diversity. The ecological value of the individual patches can then establish a connected matrix to protect habitat, promote wildlife migration and native plant dispersal. It is important to recognize the role natural resources have in retain ing Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-7 the City’s scenic and rural character while providing opportunities for low- intensity human recreation such as hiking and wildlife viewing. Planned linkages should connect two or more areas of natural resource features. For example, in Franklin, areas identi fied by the Southeastern Wisconsin Regional Planning Commission ( SEWRPC) as primary or secondary environmental corridor could be linked to an isolated natural resource area. Buffers should be incorporated around these resources, and linkages should be created or maintained between them. Table 3.1 provides a summary of principles that were used when identifying potential linkages in the Planning Areas. Map 3.1 identifies the location of the Linkages. Table 3.1: Basic Ecological Principles for Establishing Linkages Determining Which Natural Resources to Link • Large natural areas should be generally prioritized over small natural areas. • Several patches of the same habitat type are better than one patch. Linkages • Wider linkages are better than narrow linkages. • Natural connectivity, especially hydrologic links, should be maintained or restored when possible. • Introduced connectivity should be considered when appropriate. • Two or more linkages between patches are better than one. • Structurally diverse linkages and patches (higher habitat values) are better than ones with uniform structure (lower habitat values). Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-8 Map 3.1: Linkages Note: Additional Linkage data for Planning Areas A, C, D and E will be included in the final report. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-9 Fallow fields, shrub thickets, and hedgerows are examples of areas that can serve as buffers and linkages in Franklin. These areas should be evaluated during any development proposal for their appropriateness as a buffer or linkage and maintained (and managed, if possible) for their wildlife and /or potential recreational value. Where buffers and linkages maintain habitat quality, they should be kept as wide as possible to maximize their habitat and recreational value as wildlife transportation corridors. Where possible, the quality of these areas should be enhanced by increasing their width and structural diversity through native plantings. Because the majority of the remaining habitat within Franklin is fragmented (and because it has been estimated that less than 17 percent of the City’s pre-European settlement habitat remains), the following items should be considered during transportation and utility planning, development proposal reviews and recreational facility design: • Roads serve as barriers to wildlife movement; therefore, avoid designing roads through core reserve areas. • Wildlife crossings and culverts that allow for the passage of wildlife should also be considered for roads that divide buffer and linkage areas. • Minimize the width and extent of trails through high qualit y natural areas; instead, design the trails along the perimeter and within the linkages. The natural resource map for each Planning Area depicts areas that should be maintained or created as linkages (see Appendix G ). These Linkage areas are recommended to be protected as described later in this chapter, and are also discussed in greater detail by planning area later in this chapter. Additional Natural Resource Protection Standards During 2007 and 2008, the Comprehensive Master Plan Update Steering Commit tee undertook a special study (further information about this study, entitled “ Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy for the Southwestern Portion of the City ”, is provided in Chapter 5 ) in part to identify additional natural resource protection standards for the southwestern portion of the City (encompassing all of those lands within Planning Area H and adjacent portions of Planning Areas B and I). The intent of this part of the study was to set standards to protect the existing rural character of this portion of the City (which includes its natural resources) to the greatest extent possible in light of envisioned future development. The study was adopted by the City of Franklin Plan Commission on November 20, 2008, as an element of the 1992 Comprehensive Master Plan, with the intent that it be included in the Comprehensive Master Plan Update. The study for the southwestern portion of the City recommended protection of the following natural resource features in addition to those already within the City of Franklin Unified Development Ordinance: Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-10 • The Southeastern Wisconsin Regional Planning Commission’s Primary Environmental Corridors, Secondary Environmental Corridors, and Isolated Natural Resource Areas, as set forth in Planning Report NO. 48, A Regional Land Use Plan for Southeastern Wisconsin: 2035; • Cedarburg Science’s proposed Linkages, as set forth in this chapter of the Comprehensive Master Plan; and • The Southeastern Wisconsin Regional Planning Commission’s Greenway Connections as set forth in Memorandum Report NO. 152, A Greenway Connection Plan for the Milwaukee Metropolitan Sewerage District. In general, it can be noted that the study envisioned that these additional natural resource features would receive separate and more flexible standards than those already set forth in the Unified Development Ordinance, to enable more opportunities for natural resource protection. Appendix G provides a copy of this information. It is recommended that the “Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy for the Southwestern Portion of the City”, be included as part of this Comprehensive Master Plan, and that the subject Overlay District for the southwestern portion of the City of Franklin be adopted as an amendment to the Unified Development Ordinance. Furthermore, it is also recommended that these additional natural resource protection standards be considered for implementation in other appropriate portions of the City, subject to further study of this matter during the timeframe of this Comprehensive Master Plan. It is further suggested that when these additional natural resource protection standards are considered, that the City also researches the following concepts for possible implementation within the City: • Protection and mitigation standards for wetlands and woodlands to be based in whole or in part upon the quality of the subject wetland/woodland; • Creation of protection and mitigation standards specific to prairies; • Creation of standards for money in lieu of mitigation (i.e. banking credits); and • Creation of a wetland and woodland mitigation banking program. Continued implementation of the natural resource protection standards contained within the Unified Development Ordinance, in conjunction with the additional natural resource protection standards noted above, are intended to allow more flexibility and still address the natural resource protection needs and requirements of the City of Franklin for at least the timeframe of this Comprehens ive Master Plan update (2005 through Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-11 2025). However, it is envisioned that periodic review of this situation will be necessary to ensure that these protection standards continue to properly address the needs of the City. FINDINGS While the preceding section provided information on overall natural resource protection priorities and standards, the following section provides more detailed information in regard to specific natural resource features. Agricultural Resources While agriculture is important, partic ularly in the City of Franklin’s situation, because it’s associated landscapes contribute to and often are a significant part of the City’s rural character , it should be noted that few active farms remain within the City. The majority of the agricultural lands within the City are leased to non - tenant farmers. However, agriculture in general, particularly from a regional standpoint, can be very important. See Map 3.2 for the location and status of agricultural lands within the City, and Appendix G for suc h maps for each of the nine Planning Areas. In this regard, the American Farmland Trust has identified the loss of productive agricultural land to development in the southeast Wisconsin region as one of the three most critical farmland preservation issues in the United States. And as mentioned earlier, the City of Franklin contains the last prime agricultural land within Milwaukee County. Prime agricultural lands consist of those highly productive soils classified as agricultural capability Class I and Class II by the U.S. Natural Resources Conservation Service. Additional information on this topic can be obtained from the Southeastern Wisconsin Regional Planning Commission and Planning for Agriculture in Wisconsin, A Guide for Communities, November 2002, prepared by the UW Cooperative Extension and the Wisconsin Department of Agriculture, Trade and Consumer Protection. The majority of the soils in the City are classified as hydric or soils with hydric inclusions ( see Map 3.3 for the location of hydric soils within the City, and Appendix G for such maps for each of the nine Planning Areas ). These soils are very fertile, as they have a higher organic component that provides essential nutrients, and they retain moisture during drought conditions. These soils often produce high crop yields, and therefore have been used for agricultural purposes. However, some risk is involved when farming hydric soils, due to large precipitation or spring runoff events that often result in flooding of these soils. Flooding in the early spring may preclude the use of the soils or may delay planting of the crops, thereby restricting the type of crop that can be grown. Flooding during the growing season may damage existing crops, thereby reducing yields. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-12 Map 3.2: Agricultural Lands Note: Agricultural Lands data for Planning Areas A, C, D and E will be included in the final report. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-13 Map 3.3: Hydric Soils Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-14 Hydric soils are, by definition, soils that are poorly drained. They are typically located in wetland areas, when artificial drainage or filling has not occurred. These soils are important because they act as a sponge by retaining water, thereby reducing surface runoff which leads to soil erosion and flooding of lakes and streams. Agricultural runoff contributes excess nutrients, sediment, and chemicals such as fertilizers and herbicides to surface waters, resulting in degraded water quality. Restoring buffers around water resources, and installin g filter strips along drainage ways within fields, are some Best Management Practices (BMPs) designed to reduce agricultural runoff. During the field surveys, areas where these practices would be beneficial were identified (see City of Franklin: Agricultural Lands). Several cost -share conservation programs are available to assist with the funding of Best Management Practice (BMP) implementation, or placing land in conservation easements: • The Environmental Quality Incentives Program (EQIP) is a Natural Resource Conservation Service (NRCS) program that provides financial and technical support with structural and management conservation practices on agricultural land. • The Conservation Reserve Program (CRP) is a Natural Resource Conservation Service (NRCS) program that provides annual rental payments and cost -share assistance to landowners to establish long -term conservation practices. • The Wetland Reserve Program (WRP) is a Natural Resource Conservation Service (NRCS) program that provides financial incentives to landowners to restore wetlands that have been drained for agriculture. • Greenseams is a flood management program sponsored by the Milwaukee Metropolitan Sewerage District (MMSD) that identifies and purchases undeveloped, privately owned properties that contain large areas of hydric soils, thereby protecting them from future development. In addition, it is suggested that the City consider use of the Land Evaluation and Site Assessment (LESA) system created by the Natural Resources Conservation Service which, among other things, measures agricultural land productivity to assist landowners and others prior to making land use conversions to non - agricultural uses. Protection of these agricultural resources as they pertain to sustaining the rural and suburban character of the City, and as they may be incorporated into the Linkages and additional natural resource protection standards noted earlier in this chapter, is envisioned to fully address the needs of the City on this matter. However, it is suggested tha t should opportunities become available, and local interest exist, for greater protection of this resource, such opportunities should be considered. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-15 Agricultural land in Franklin is zoned A -1 and A -2, designating the land for agricultural usage. Additional farmland preservation opportunities exist for the City of Franklin. Examples of farmland preservation tools include: agricultural zoning, conservation easements, purchase of development rights programs, transfer of development rights programs, etc. Conservation easements offer long -term protection of agricultural land through voluntary donations of land and/or development rights. Conservation easements are a preservation tool that permanently protects land from development. Local land trusts or State Agencies could hold conservation easements. Purchase of Development Rights (PDR) and Transfer of Development Rights (TDR) Programs are not currently available in the City. Such programs could be instituted at the City, County or State level. These programs are voluntary and permanently protect land from development. Natural Resources Protection of natural resources helps ensure the continuing beauty and cultural heritage of the region, which in turn can contribute to the quality of life. Even more importantly, the health, welfare and safety of a community are inextricably linked to the preservation of its remaining natural resources. The benefits derived from natural resource protection can include, among others: • Recharge of groundwater supplies; • Maintenance of surface water and groundwater quality; • Attenuation of flood flows and stages; • Maintenance of base flows of streams and watercourses; • Reduction of soil erosion; • Abatement of air pollution; • Abatement of noise pollution; • Favorable modification of climate; • Facilitation of the movement of wildlife and provision of game and non-game wildlife habitat; • Facilitation of the dispersal of plant seeds; • Protection of plant and animal diversity; and Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-16 • Protection of rare, threatened and endangered species. Because of the vital functions performed by natural resources, the intrusion of development activities into these areas should be discouraged. The possibility for incompatibility can be evidenced by the widespread, serious and costly problems that development can encounter within natural resource features. Examples include failing foundations of pavements and structures, wet basements, excessive operation of sump pumps, excessive clear water infiltration into sanitary sewer systems, and poor drainage. Further back ground and inventory information, including the basis for the natural resource protection standards present within the City of Franklin’s Unified Development Ordinance, can be found in Chapter 3 of the 1992 City of Franklin Comprehensive Master Plan. Since each resource element or environmental unit is a component of one or more systems, protection of its function with that system is more important than protecting it for its own sake. As stated earlier, the City of Franklin contains a majority of the remaining natural and agricultural resources (wetlands, woodlands, agricultural land) in Milwaukee County. Of the seven -county area in Southeast Wisconsin, Milwaukee County has suffered the greatest loss in pre -settlement vegetation, including nearly all of its prairie and oak savanna (SEWRPC, 1997). Loss of pre -settlement vegetation has resulted from urban development, agricultural practices, and invasions by exotic plant and animal species, fire suppression, pathogens and destructive insects. In the City o f Franklin in 2005, however, approximately 18.7 percent of the land area supports mature and young woodlands---primarily mixed-oak hardwood forests and remnant oak savanna. Additionally, 12.9 percent still consists of wetlands, and approximately 21.3 percent is active agricultural land. Most of the remaining woodlands and wetlands are in need of management (e.g., invasive species control). Although the percentage of remaining natural and agricultural lands in Franklin far exceeds what is remaining in most other Milwaukee County municipalities (thus elevating the value of the City’s natural resources and establishing a valid rationale for resource protection in Franklin), the land mass of the City of Franklin is much larger than most of the neighboring communities in Milwaukee County. See Map 3.4 for the location of potential woodlands, wetlands, and prairies within the City, and Appendix G for such maps for each of the nine Planning Areas. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-17 Map 3.4: Natural Resources Note: Additional Natural Resources data for Planning Areas A, C, D and E will be included in the final report. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-18 A detailed discussion of the existing natural resources within each Planning Area is provided later in this chapter. The following sections provide a general explanation of each of the important natural resource features present within the City and the information needed to distinguish between different resource categories and elements of the resource base. Soils Soil is a natural body comprised of unconsolidated minerals and organic matter, liquid, and gasses that occurs on the surface of the earth, occupies space, and is characterized by one or both of the following: horizons, or layers, that are distinguishable from the initial parent material as a result of additions, losses, transfers, and transformations of energy and matter or the ability to support rooted plants in a natural environment (NRCS 2003). Soil properties exert a strong influence on the manner in which man uses la nd. Map 3.5 identifies the soils present within the City, and Map 3.6 identifies those soils which are often unsuitable for development due to conditions such as high groundwater, excessive amounts of organic matter or clay, etc. The soil resources Section set forth in the 1992 City of Franklin Comprehensive Master Plan is hereby incorporated by reference into this Plan (see pages 3-4 through 3-7 of the 1992 Comprehensive Master Plan for this information). Woodlands Woodlands and forests have important roles in many biological cycles, such as the energy, oxygen, nitrogen, and carbon cycles. They provide habitat for numerous plants, organisms, and wildlife. Woodlands contribute to water quality, air quality, and soil stabilization, serve as wind breaks for agricultural fields and homes, and moderate solar radiation. See Map 3.4 for the location of potential woodlands within the City and Appendix G for such maps for each of the nine Planning Areas. Under the City’s Unified Development Ordinance, woodlands a re classified as either mature or young, with differing protection standards based upon this classification and the type of zoning , as set forth in Table 15- 4.0100. For the purposes of this Plan, and as set forth in the Unified Development Ordinance, a mature woodland is defined as an area or stand of trees whose total combined canopy covers an area of one acre or more and at least fifty (50) percent of which is composed of canopies of trees having a diameter at breast height (DBH) of at least ten (10) inches; or any grove consisting of eight (8) or more individual trees having a DBH of at least twelve (12) inches whose combined canopies cover at least fifty (50) percent of the area encompassed by the grove. However, no trees planted and grown for commercial purposes should be considered mature woodland. A young woodland is defined as an area or stand of trees whose total combined canopy covers an area of one - half (0.50) acre or more and at least fifty (50) percent of which is composed of canopies of trees having a diameter at breast height (DBH) of at least three (3) inches. However, no trees kept or grown for commercial purposes shall be considered young woodland. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-19 Map 3.5: Soils Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-20 Map 3.6: Soils Unsuitable for Development Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-21 Steep Slopes Slope, to a considerable extent, determines the land uses practicable on a given parcel of land. Slope is directly related to water runoff and erosion hazards. Therefore, the type and extent of land uses should be carefully adjusted to the slope of the land. In general, slopes of ten percent or more are unsuitable for development and most agricultural uses; they should be maintained as essentially natural, open areas for wildlife habitat and erosion control. Lands with less severe slopes may be suitable for certain open space uses such as pasturelands, and for certain development, such as carefully designed low -density residential areas. Lands which area gently sloping or nearly level are typically, best suited to developmen t. However, for detailed site and land planning purposes, all slopes should be determined from on -site topographic surveys prepared and graphically shown with at least a two-foot contour interval. Under the City’s Unified Development Ordinance, steep slopes are classified into three categories, those slopes between 10 and 19 percent, those between 20 and 30 percent, and those greater than 30 percent, with differing protection standards based on these classifications and the type of zoning, as set forth in Table 15 - 4.0100. (see Map 3.7) Topography is a graphic presentation of the land surface’s features, indicating their relative position and elevations. This information is typically collected and utilized for large areas , and is particularly useful in regional planning for the determination of future generalized land uses in relationship to one another and to the land’s surface . A common example is the utilization of topographic information to determine appropriate locations for regional facilities such as: • sewage treatment facilities (down slope and downstream of most of the development it is intended to serve); • airports (on topography with few obstructions); and • highways (selecting those route locations with the fewest obstructions and impediments to overcome) . Map 3.8 identifies the relative elevations (topography) within the City of Franklin. As shown on Map 3. 8, the highest elevations occur in the western portions of the City (about 856 feet above sea level, near S. 123rd Street and W. Belmar Drive) , and generally decrease in elevation as one heads southeast. The lowest elevations occur along the Root River in the southeastern portion of the City (about 668 feet above sea level, where the Root River exits the City). Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-22 Map 3.7: Steep Slopes Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-23 Map 3.8: Elevation Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-24 Water Resources Water resources are a crucial element of the natural resource base for the City of Franklin. Water resources such as; groundwater, surface water, stream corridors, floodplains, and wetlands sustain the City ’s economic development, population growth, and wildlife while also providing recreational opportunities, and aesthetic quality. According to the Wisconsin Department of Natural Resources (DNR), a watershed includes the lands that drain from surrounding areas to a common point such as a lake or stream, to its confluence with a neighboring watershed. All lands and waterways are located within a watershed. The Root River and its associated watershed is a major water resource in the City of Franklin and Milwaukee County. A water pollution management system, with assistance from the DNR and the Southeastern Wisconsin Regional Planning Commission, is being developed that uses a “watershed approach” or a systems approach, whenever possible, to address water pollution problems or to restore or protect water resources. The Root River, which is listed by the DNR as an impaired (303d) water, may be subject to such a program. Whether this occurs or not, it is commonly understood that protecting watersheds from nonpoint source pollution is important to protecting and improving water quality. Groundwater Groundwater is water that infiltrates down into subsurface soil and rock. Groundwater moves through openings between soil or rock particles or along fractures in rock. A layer of rock or soil that is capable of storing, transmitting and yielding a usable amount of water to a well or spring is called an aquifer. Groundwater occurs within five aquifers that underlie Southeastern Wisconsin including the Quaternary sand and gravel, Silurian dolomite, Galena-Platteville, upper sandstone, and lower sandstone. (see Map 3.9) Groundwater sustains lake levels and wetlands and provides the base flows of streams in the City of Franklin. Groundwater also comprises a source of water for domestic, municipal and industrial wells. The City of Franklin switched from groundwater to lake water in 1997 to provide residents with higher quality drinking water. Prior to the switch, radium levels in excess of gover nment standards were found in the Franklin ground water well system. Franklin’s well system now is used only as a backup during periods of high usage. One percent of the water supplied by the Franklin Water Utility comes from groundwater. The majority of Franklin’s municipal water is purchased from the Oak Creek Water Utility which pumps and treats water from Lake Michigan. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-25 Map 3.9: Groundwater Recharge Areas Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-26 Lakes and Ponds Lakes and ponds are natural or artificial water bodies that retain water year -round. Lakes are defined in the City’s Unified Development Ordinance as any body of water two acres or larger in size; ponds are all bodies of water smaller than two acres. The size of the lake or pond is measured by the shoreline at its Ordinary High Water Mark rather than the permanent pool condition, if there is any difference. In the City of Franklin, there are several named lakes which must be protected, including; Bishop Lake (now known as Koepmier Lake located in U.S. Publ ic Land Survey Section 3), Dumkes Lake (Section 19), Monastery Lake (Section 8), Mud Lake (located in Grobschmidt Park in Section 1), Root River Parkway Pond (Section 3), and Whitnall Park Lake (Section 5). Under the City’s Unified Development Ordinance, lakes’ and ponds’ protection standards are based on the type of zoning, as set forth in Table 15-4.0100. Stream Corridors The City of Franklin lies within three separate watersheds. These include the Root River, Oak Creek, and Fox River Watersheds. In fact, the dividing line between the Fox River Watershed and the Root River Watershed is the sub continental divide and is located in Franklin’s U.S. Public Land Survey Sections 30 and 31. Precipitation falling on that part of the City lying east of this divide will flow to Lake Michigan as part of the Great Lakes- St. Lawrence River drainage basin. Precipitation falling on that part of the City lying west of this divide will flow to the Fox River as part of the Mississippi River drainage basin. The two major perennial streams in the City of Franklin are Oak Creek and the Root River. Perennial streams are defined as watercourses which maintain, at a minimum, a small continuous flow throughout the year except under unusual drought conditions. Intermittent streams are defined as those watercourses that do not maintain a continuous flow throughout the year. All but the smallest of these stream corridors generally include floodways, floodplains, shorelands, and wetlands. These features are overlapping and form a continuous system of drainage. Stream corridors not only accommodate drainage flow but also provide habitat and water for wildlife. Under the City’s Unified Development Ordinance, streams ’ (defined as a course of running water, either perennial or intermittent, flowing in a channel) and channel (defined as a natural or artificial watercourse of perceptible extent which periodically or continuously contains moving water, or which forms a connecting link between two bodies of water, and has a definite bed and banks which confine the water) , protection standards are based on the type of zoning, as set forth in Table 15-4.0100. Shore buffers are typically a vegetated strip of land that protects water from the impacts of nearby development, provides wildlife habitat, and screens buildings when viewing from the water. If properly Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-27 designed and maintained, a shore buffer can help protect shorelands and adjacent lakes and rivers from physical, chemical, hydrological, and visual impacts. Under the City’s Unified Development Ordinance, the shore buffer is defined as “All of that land area located within seventy-five feet landward of the ordinary high water mark of all ponds, streams, lakes, and navigable waters (as determined by the Wisconsin Department of Natural Resources) and parallel to that ordinary high water mark, which is to remain undisturbed as a Natural Resource Feature (including undisturbed natural vegetation). Shore buffers do not include any area of land adjacent to any stream enclosed within a drainag e structure, such as a pipe of culvert.” The protection standards for the shore buffer are also based on the type of zoning, as set forth in Table 15-4.0100 of the Unified Development Ordinance. Floodplains The floodplains of a river or stream are the wide, gently sloping areas contiguous to, and usually lying on both sides of, the river or stream channel. Rivers and streams occupy their channels most of the time. However, during even minor flood events, stream discharges increase markedly, and the chann el may not be able to contain and convey all of the flow. As a result, stages increase and the river or stream spreads laterally over the floodplain. The periodic flow of a river into a floodplain is a natural and healthy phenomenon and will occur regardless of whether or not urban development exists on the floodplain. For Planning and regulatory purposes, floodplains are normally defined as the areas, excluding the channel, subject to inundation by the 100 -year recurrence interval flood event. This is the event that would be reached or exceeded in severity once on the average of every 100 years. Stated another way, there is one percent chance of this event being reached or exceeded in severity in any given year. Floodplain areas are generally not well suited to development, not only because of flood hazard, but also because of the presence of high water tables and of soils poorly suited to such use. However, the floodplain areas generally contain important elements of the natural resource base, such as woodlands, wetlands, and wildlife habitat. Therefore, floodplains constitute prime locations for needed open space areas. Every effort should be made to discourage indiscriminate and incompatible development on floodplains, while encouraging compatible open space use. Pursuant to Federal Emergency Management Agency (FEMA) and Wisconsin Department of Natural Resources (DNR) requirements, the City of Franklin undertook an update of its floodplain regulations in 2008. In order to meet the federal and sta te deadlines for update of the floodplain regulations, the City chose to adopt both the DNR’s model floodplain ordinance as well as update the floodplain regulations contained within the Unified Development Ordinance. The new floodplain regulations for the City of Franklin are set forth in Ordinance NO. 2008-6482, An Ordinance to Amend the Unified Development Ordinance Text as it pertains to Floodplain Zoning Regulations, which was approved by the Common Council on September 11, 2008. The floodplain zoning regulation changes were required because an update of the Flood Insurance Study and Flood Insurance Rate Map for Milwaukee County (including the City of Franklin) had been completed by the Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-28 Federal Emergency Management Agency and the Wisconsin Department of Natural Resources. The City’s new floodplain zoning regulations now includes the updated mapping as required by FEMA, as well as meets or exceeds all floodplain standards required by the DNR. See Map 3.10 for this information. However, due to utilization of both the Wisconsin Department of Natural Resources’ model ordinance, as well as continued use of the floodplain regulations within the Unified Development Ordinance, some duplication and inconsistencies between the two documents have been identified. It is therefore recommended that the floodplain regulations be revised to correct these concerns as soon as feasible. In addition, it is recommended the City of Franklin consider participation in the Community Rating System (CRS) administered by the Nati onal Flood Insurance Program. The CRS provides discounts on flood insurance premiums in those communities that establish floodplain management programs that go beyond National Flood Insurance Program minimum requirements. Under the CRS, communities receive credit for more restrictive regulations, acquisition, relocation, or flood proofing of flood-prone buildings, preservation of open space, and other measures that reduce flood damages or protect the natural resources and functions of floodplains. Wetlands Wetlands are defined in the City’s Unified Development Ordinance as areas where water is at, near or above the land surface long enough to be capable of supporting aquatic or hydrophytic (water -loving) vegetation and which has soils indicative of wet conditions. Wetlands are characterized by vegetation, soil type, and degree of saturation or water cover. Wetlands include swamps, marshes, sedge or “wet” meadows, bogs, and similar areas. Wetlands have an important set of functional values which make them a particularly valuable resource. These functions include; floral diversity, fish and wildlife habitat, flood protection, water quality protection, shoreline protection, groundwater recharge and discharge, aesthetics, recreation, and education. Wetland protection is a Federal mandate implemented by the Army Corps of Engineers, as well as a State mandate implemented by the Wisconsin Department of Natural Resources. See Map 3.4 for this information within the City, and Appendix G for such maps of the nine Planning Areas. Under the City’s Unified Development Ordinance, wetlands’ protection standards are based on the type of zoning, as set forth in Table 15-4.0100. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-29 Map 3.10: Floodplain Map Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-30 Wetland buffers or setbacks are those lands outside but immediately adjacent to a wetland where development is restricted or prohibited. Their primary function is to physically protect and separate a wetland from future disturbance or encroachment. If properly designed and maintained, wetland buffers/setbacks can provide stormwater management benefits, and can help sustain the integrity of the wetland ecosystem and habitat. Under the City’s Unified Development Ordinance, the wetland setback is defined as “All of that landward land area defined by the minimum required horizontal setback distance of fifty feet from a delineated wetland boundary, and a line parallel thereto. The wetland setback is inclusive of any require wetland buffer area.” More simply, the wetland buffer is that land within 30 feet of the wetland, within which development and land disturbing activities are generally prohibited. The wetland setback is that land within 50 feet of the wetland, but outside the wetland buffer, within which development is generally prohibited but within which temporary land disturbing activities are generally allowed. The protection standards for the wetland buffer and wetland setback are also based on the type of zoning, as set forth in Table 15 -4.0100 of the Unified Development Ordinance. Threatened and Endangered Species The State of Wisconsin designates endangered species as any species native to the State of Wisconsin whose continued existence as a viable component of the State’s wild animals or wild plants is determined by the Wisconsin Department of Natural Resources (WDNR), on the basis of scientific evidence, to be in jeopardy (Wis. Stats, S. 29. 604(2)(a)). The State designates threatened species as any species of wild animal or wild plants native to the State of Wisconsin which appear likely, within the foreseeable future and on the basis of scientific evidence, to become endangered (Wis. Stats, S. 29. 604(2) (b)). Special Concern species are those species about which some problem of abundance or distribution is suspected but not yet proved. The main purpose of this category is to focus attention on certain species before they become threatened or endangered (Wisconsin Department of Natural Resources). The Wisconsin Natural Heritage Inventory (NHI) was established in 1985 by the Wisconsin Legislature, as a tool for maintaining data on the locations and status of rare species, natural communities, and natural features in Wisconsin. The NHI is maintained by the Wisconsin Department of Natural Resources (WDNR) Bureau of Endangered Resources. The Wisconsin Natural Heritage Inventory database provides a Working List of recent and historic element observations by Town and Range for Milwaukee County. The list references species designated as “Endangered” or “Threatened.” Township 5 North, Range 21 East encompasses the City of Franklin. Endangered Species in Franklin include; Purple Milkweed (Asclepias purpurascens), Ravenfoot Sedge (Carex crus -corvi), False Hop Sedge (Carex lupuliformis), and Bluestem Goldenrod (Solidago Caesia). Threatened Species in Franklin include; Prairie Indian Plantain (Cacalia tuberosa), Handsome Sedge (Carex formosa), Blanding’s Turtle (Emydoidea blandingii), Longear Sunfish (Lepomis megalotis), Redfin Shiner (Lythrurus umbratilis), and Osprey (Pandion haliaetus). Species of Spec ial Concern in Franklin include; Northern Yellow Lady’s -slipper (Cypripedium parviflorum var. m), Showy Lady’s -slipper (Cypripedium reginae), Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-31 Lake Chubsucker (Erimyzon sucetta), Least Darter (Etheostoma microperca), American Gromwell (Lithospermum latifolium), Prairie Crayfish (Procambarus gracilis), Heart -leaved Skullcap (Scutellaria ovata), Dickcissel (Spiza americana), Reflexed Trillium (Trillium recurvatum), Smooth Black -haw (Viburnum prunifolium). Natural communities native to Wisconsin that are found in Franklin include; Emergent Marsh, Floodplain Forest, Mesic Prairie, Nothern Wet Forest, Oak Opening, Shrub -carr, Southern Dry -mesic Forest, Southern Mesic Forest, Southern Sedge Meadow, Wet Prairie, and Wet-mesic Prairie. See Map 3.11 for the location of critical habitat within the City. Metallic and Non-Metallic Mineral Resources Metallic mineral mining refers to mining of mineral deposits that contain recoverable quantities of metals, such as copper, zinc, lead, iron, gold, and silver. The City of Franklin has no known metallic mineral resources or metallic mines within the City. The commercial utilization of Franklin’s mineral resources is limited to the mining of nonmetal deposits. Nonmetallic minerals include sand, gravel, and stone. Franklin contains two active non -metallic mines (quarries). Payne & Dolan, Inc. operates an approximately 155 acre limestone quarry and Vulcan Materials Company operates an approximately 170 acre limestone quarry. The two quarries are located adjacent to one another in U.S. Public Land Survey Sections 10 and 11 of the City of Franklin. These two quarries are governed by State of Wisconsin regulations, contained within Chapter 30 of the State Statutes and Wisconsin Administrative Codes NR 135 and 340. In addition, the two quarries are governed by City of Franklin Ordinance No. 97-1456, and the City regularly reviews the blast monitoring reports. It is envisioned that the quarries will continue to be regulated and monitored as required by State and City regulations. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-32 Map 3.11: Wildlife Habitat Areas Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-33 Cultural Resources Community cultural resources are a significant element in defining local character, and include buildings, neighborhoods, view sheds 1 and geographic landscapes. As with many communities , the cultural attributes of Franklin are highly valued by the community as they provide residents and visitors a special sense of place and a feeling of continuity and association with the past. Such a contribution is invaluable at a time when Franklin is developing. As Franklin plans for pending growth, it is important to consider the aesthetic, educational and economic benefits of cultural resources -- from rural landscapes to individual structures. Therefore, planning objectives that serve to protect and enhance the cultural heritage merit attention. Prehistoric Resources The area of Franklin was inhabited for thousands of years by a variety of Native American groups prior to a sudden influx of European and American settlers during the early -to-mid 1800s. Within Southeast Wisconsin, evidence of Native American civilization is preserved in archeological sites, and provides important information about the lives of people who are not well represented in the written record. However, it is not uncommon to find evidence of American Indian villages and other earlier settlements in the form of houses, storage areas, burials, and other undisturbed deposits underneath the tilled layer in farm fields or in urban settings. Wisconsin Archaeological Site Inventory The Wisconsin Historical Society (WHS) maintains a list of archaeological sites and cemeteries referred to as the Archaeological Site Inventory (ASI). Approximately 100 archaeological sites, including nine cemetery or burial sites, have been catalogued in the City of Franklin. Since a small portion of the City has been surveyed for the presence of archaeological sites and cemeteries, the inventory represents only a fraction of sites that are likely present. Within Franklin, the largest concentration of archeological resources – principally campsites or villages – are found within Root River floodplain, and therefore receive a measure of protection as a result of environmental constraints to development. As a general rule, areas that are most likely to harbor archeological resources -- and therefore should be considered high priorities for protection -- include: 1 Viewsheds are typically defined as areas of particular scenic or historic value that are deemed worthy of preservation agains t development or change, are visible from public areas such as roads or parks, and are often part of open space preservation programs. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-34 • higher, dryer areas adjacent to rivers, streams, creeks, lakes, wetlands • higher, dryer areas adjacent to older abandoned rivers, streams, creeks, lakes, wetlands • areas adjacent to historic features such as trails, early roads, rail corridors, and early Anglo - settlements Although Wisconsin’s burial sites preservation law is quite progressive when compared with other states, it leaves the majority of Wisconsin’s burial sites with only limited protection. Unless a burial site is formally catalogued, a process that requires hiring a registered surveyor and filing a land description at the County Register of Deeds, owners can get permission to remove and analyze any burial, including those within Native American mounds. Under the current law and burial sites office budget, cataloging Wisconsin’s remaining mounds, as well as Wisconsin’s other relatively unprotected burials outside of maintained cemeteries, will take decades. Historic Resources The Anglo-settlement of the City of Franklin dates to the early 1800s when the “crossroads” of St. Martins was established west of the Root River. While the events of Franklin’s history are chronicled in writing, few physical resources that allow for interpretation of these events survive to the present day. National Register of Historic Places Under the Historic Preservation Act of 1966, cultural resources that are associated with historic events, lives of significant persons, methods of construction or artistic style, or important historic and prehistoric information may potentially be nominated to the National Register of Historic Places (NR). Listed properties benefit from Federal tax credits for rehabili tation, and may be eligible for various rehabilitation grants. While the National Register upholds high standards for maintaining historic integrity, Federal listing does not impose regulations or policies that inhibit modifications or sale of designated prosperities. Ordinarily cemeteries, birthplaces, graves of historical figures, properties owned by religious institutions or used for religious purposes, structures that have been moved from their original locations, reconstructed historic buildings, or p roperties that have achieved significance within the past 50 years are not considered eligible for the National Register. Within the 34 -square mile area of Franklin, the National Historic Register lists one structure (Painesville Chapel, ca. 1853; listed 1977) , a Greek Revival style funerary building constructed of stone, brick and weatherboard in approximately 1852, which is located at 2740 W. Ryan Road. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-35 Wisconsin Architecture and History Inventory The AHI is a permanent record maintained by the Wisconsin Historical Society, and contains historical and architectural data on buildings, structures and objects that illustrate Wisconsin's unique history. The inventory documents a wide range of historic properties such as the barns, log houses, metal truss bridges, and small town commercial buildings. The catalogue has been assembled since the 1970s from a wide variety of sources, and much of the survey information is dated. In particular, buildings or objects that were constructed during the early post-World War II era have not been recorded. The Architecture and History Inventory lists 71 buildings or sites in Franklin (November 2005) that are “of cultural interest.” Most of the listed properties from the City of Franklin were visually surveyed, and the cultural significance and historic integrity has likely gone undocumented. It is probable that a number of these properties in Franklin have been significantly altered, relocated or no longer exist. Unlike some local historic landmark programs, inclusion in this inventory conveys no special status, rights or benefits to owners of these properties. However, it provides for documentation for comparative purposes, and represents an accessible resource from which to begin more thorough historical investigations. Milwaukee County Landmarks Program The Milwaukee County Landmarks Committee administers a county -wide program to designate buildings, sites, and districts that reflect the historical, architectural, or cultural significance of Milwaukee County. The prim ary purpose of designating a landmark is strictly educational and does not confer special protection on a structure, provide it with any financial or legal advantage, modify or limit the owner’s property rights. Nominations are accepted annually by the Milwaukee County Historical Society. As shown on Table 3.2, of 94 county-wide properties that have been awarded “landmark status, eight reside in the City of Franklin. Four of these historic buildings were relocated to Lion’s Legend Park by the Franklin Historical Society. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-36 Table 3.2: Designated Landmarks within the City of Franklin Property Name Address Year Designated Date of Origin Painesville Memorial Chapel 2740 West Ryan Rd. 1977 1852 Carmen Family Cemetery 9000 South 68th St. 1982 1839 Michels/Balistreri Farm 10623 West Oakwood Rd. 1994 1868 The Whelan School Drexel Ave. & Loomis Rd 1995 1852 St. Peter’s Chapel Drexel Ave. & Loomis Rd 1995 1869 Franklin Town Hall Drexel Ave. & Loomis Rd 1995 1884 The Sheehan-Godsell Cabin Drexel Ave. & Loomis Rd 1995 1836 Holy Assumption Church 11321 W. St. Martin Rd. 1998 1867 Historic Preservation Overlay The City of Franklin affords a measure of protection and preservation of structures that represent historic assets through a Historic Preservation Overlay (HPO) District zoning regulation (Section 15 -3.0317, Unified Development Ordinance 2004). Properties that are designated as historic districts, landmarks or landmark sites may elect protection under the HPO tool, and would undergo rezoning. Structural alterations and destruction are regulated through the ordinance, and approval of such plans must be granted approval by the City Plan Commission. Although this municipal planning tool endorses historic preservation efforts, no formally designated historic district exists at present. Municipal -level tax incentives and funding are minimal to non - existent for HPO Districts in most cases. Parklands and Parkways The Milwaukee County Parks system has a rich history that dates to the early d ays of the City of Milwaukee, when vacant lands were purposefully designated as public commons. By turn of the century in 1900, the City of Milwaukee accounted for a population of 330,000 -- 10 times larger th an the census records of 1850. In tandem with population growth, the City of Milwaukee dedicated generous acreage for parkland use that included developed playing fields, pastoral greens, and natural areas along river drainages. By the mid -1920s, the system of parkland had expanded to the urban -rural interface. A substantial new “anchor park” in the southwestern area of the City was established in 1928, when 600 acres of farmland that straddled Root River in the communities of Franklin and Hales Corner was bequeathed to the City. Known as Hales Corners Park (later renamed Whitnall Park), this public facility served as a catalyst that eventually helped guide preservation of some 2,100 additional acres along the Root River channel in the City of Franklin (Franklin Comprehensive Outdoor Recreation Plan: 2020, 2002). While the County manages the majority of parklands in Franklin (about 3,300 acres), approximately 15 to 20 percent of these regional facilities accommodate active, developed or ‘urbanized’ recreation. In addition to some 3,300 acres of land, Milwaukee County Parks anticipates increasing their land holdings – primarily along the Root River Basin – in the future. As a significant component of the park system, county parks in Franklin contribute to the cultural value and heritage of green space in Milwaukee County. (see Table 3.3) Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-37 Table 3.3: Milwaukee County Park Sites within the City of Franklin County Parks Park Facilities Address Acres Crystal Ridge Downhill skiing, mountain bike trails, undeveloped natural area 7900 W. Crystal Ridge Dr 92 Franklin Park Undeveloped natural area 10400 W. Oakwood Rd 165 Froemming Park Baseball, softball, tennis, volleyball, tot-lot 8801 S. 51st St 17 Grobschmidt Park Undeveloped natural area (prairie), trails 3751 W College Ave 139 Milwaukee County Sports Complex Outdoor baseball, softball, soccer, football/rugby, frisbee golf; Indoor soccer, in-line hockey, volleyball, basketball 6000 W. Ryan Rd 117 Oakwood Park Golf, driving range 3600 W Oakwood Rd 277 Root River Parkway Picnic facilities, trails, undeveloped natural area throughout Franklin 2100 Southwood Glen Baseball, volleyball, tot-lot 3180 W Hilltop Ave 9 St. Martins Park Baseball, soccer 10705 W Robinwood Ln 19 Whitnall Park Golf, Wehr Nature Center, trails, cross- country skiing, sledding 5879 S. 92nd St 388 All County Parks - - 3323 A comprehensive Outdoor Recreation Plan (CORP) is a fundamental tool utilized in sound public park, open space, and recreational facilities planning and is a key element of community planning. An approved and adopted Comprehensive Outdoor Recreation Plan is required by the Wisconsin Department of Natural Resources in order for communities to be eligible for participation in Stewardship Grant Program. The City of Franklin Comprehensive Outdoor Recreation Plan was last updated in 2002 by Meehan & Company, Inc., and was designed to address projected and prioritized needs of the City through the year 2020. However, the CORP was intended to have an extensive review and/or update every five years. The City of Franklin Comprehensive Outdoor Recreation Plan (CORP), and all subsequent updates and amendments to that plan, are hereby incorporated by reference into this Comprehensive Master Plan. It is recommended that an update to the COR P should be expedited in order for the City of Franklin to retain eligibility for State cost sharing (grant) programs. See Table 3.4 for a list of the city-owned park, recreation, and open space sites. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-38 Table 3.4: City of Franklin Park, Recreation, and Open Space Sites Franklin Parks Park Facilities Address Acres Cascade Creek Undeveloped natural area 8300 S 60th St 9 Christine Rathke Memorial Park Play structures, baseball, trail 7700 s 68th St 7 Country Side (Tifton Woods) Undeveloped natural area 4500 W. Marquette Ave 6 Crooked Creek Walking Trail Trial W Forest Hill Ave to S 44th St Ernie Lake Trail Trail 8000 S Chapel Hill Dr 13 Franklin Woods Nature Center Play structure, pavilion, trail 3723 W Puetz Rd 38 Friendship Park Play structures, baseball, basketball 3810 W Sharon Ln 2 Glen Meadows Play structures, basketball 7362 S 37th Pl 1 Jack Workman Park Play structure, baseball, basketball, tennis, volleyball, trail 3674 W Forest Hill Ave 12 Ken Windl Park Play structure, indoor pavilion with restrooms, tennis 11615 W Rawson Ave 3 Lions Legend Park I Play structures, pavilion with restrooms, band shell, baseball, tennis, volleyball, trail 8050 S Legend Dr 14 Lions Legend Park II Play structure, pavilion with restrooms, baseball, soccer, tennis, volleyball, trail 8717 W Drexel Ave 21 Lynette Fox Memorial Park Tot-lot 6860 S Harvard Dr 1 Market Square Gazebo 11230 W Franklin St 1 Meadowland Trail Trail 8665 W Elm Ct 14 Mission Hills Neighborhood Wetlands Undeveloped natural area 10400 W Church St 14 Ollie Pederson Field Baseball 20 Pleasant View Undeveloped natural area South of Pleasant View Elementary School 24 St. Martins Bike Trail Trail Rawson Ave. to St. Martins Rd. to Forest Home Ave. to North Cape Rd. 2 All Sites - - 202 In addition, it is suggested that t he Comprehensive Outdoor Recreation Plan update include the following topics: • Consideration of a central City Park large enough to serve as the site of community wide events such as the Fourth of July Celebration. • An update of the City of Franklin’s Impact Fee regulations. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-39 • Creation of a formal Capital Improvements Program which would identify all envisioned city park , outdoor recreation, and natural resource protection, acquisition and development proposals and which would be regularly updated. • Consideration of creation of a Mixed -Use zoning district, or revision of appropriate existing zoning districts, which would allow (either as a permitted use or a special use) public park sites in conju nction with other compatible uses. • Consider participation in the Wisconsin Safe Routes to School program, which provides funding to make biking and walking to school a safer and more appealing transportation option. Issues Protection of these cultural resources as they pertain to sustaining the rural and suburban character of the City, and as they may be incorporated into the Linkages and additional natural resource protection standards noted earlier in this chapter (in conjunction with the recommendations and suggestions in the following section of this chapter ), is envisioned to fully address the needs of the City on this matter. However, it is suggested that should opportunities become available, and local interest exist, for greater protection of this resource, such opportunities should be considered. Lack of Understanding of Cultural Resource Presence While public interest in and support of historic preservation has grown since the establishment of the National Historic Preservation Act of 1966, protec tion of cultural resources is often viewed as a barrier to progress, economic development and growth. Conversely, historic buildings and districts can serve as a stimulus for economic stability and as a cornerstone that provides a community with a sense of identity. Extant cultural resources in Franklin are likely threatened by a lack of awareness as illustrated by the absence of effective regulatory tools. Although a modest level of vernacular buildings, farm complexes, agricultural landscapes and buried archaeological sites are present in Franklin, these types of cultural resources often lack immediate public appeal. These resources are particularly at risk for loss. It is worth noting that questionnaires distributed by the Wisconsin Historical Society (WHS) reveal increased interest in agricultural building preservation. Respondents to the 2005 questionnaire ranked agricultural buildings, such as distinctive barns and silos, as the third highest priority for WHS preservation efforts, compared to the 2 000 questionnaire that ranked agricultural buildings as the sixth highest priority (Wisconsin Historic Preservation Plan, 2005). The moral force of public opinion continues to be the guiding force behind issues of historic preservation. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-40 Lack of Use of Historic Preservation Overlay District Historic Preservation Overlay (HPO) District . One of the primary intent of Franklin’s Historic Preservation Overlay (HPO) District ordinance (Section 15 -3.0317) is to establish a high standard for preservation of multiple structures owned by different interests within a designated district. As with many local overlay zoning ordinances, the HPO places additional restrictions on the property or structure than county, state or federally - designated historic landmarks. Through enforcement of design standards, property values are often stabilized and enhanced. However, some property owners may be concerned that the zoning ordinance could potentially hinder the sale of a historic property, restrict altering the façade or use of a structure, or limit the ability to demolish a building. Absence of Cultural Resource Preservation in Site Plan Requirements Site Plan Development Requirements . It is estimated that Wisconsin will add 400,000 new households between 1995 and 2015. This, combined with the trend toward “scattered development,” does not bode well for Wisconsin’s ancient and historic places. In Franklin, anticipated greenfield development may threaten to damage traditional rural landscapes, archaeological sites, and historically significant structures. Franklin’s Unified Development Ordinance (2004) and site plan application process does not require documentation of cultural resources as private property is developed or redeveloped. Unlike protection, regulatory and mitigation measures specified for natural resources (Section 15 -7.0102, Division 15-7.0100), there are no regulatory directives that ensure for the long -term safeguarding of historic and prehistoric resources. Examples of such resources that have been lost within the City of Franklin include: • A five-story tall windmill located in the St. Martins area during the late 1800’s and early 1900’s. • A brewery operated by Gottfried Gross at the intersection of what are now Forest Home Avenue and St. Martins Road, which operated in the late 1800’s. • Seven of the original eight public schools that served Franklin (Riverside, Stargard, Oakwood, Green Valley, St. Martins, Willow Edge, and Kilbourn), which were constructed in the mid 1800’s and early 1900’s. • The Peter Poths General Store at the northeast corner of 76th Street and Rawson Avenue; and • The original St. James school house of 1865. Absence of a Historic Preservation Commission In cooperation with property owners, the City of Franklin is empowered to designate objects, structures, buildings, districts and sites as local landmarks if they possess aesthetic, architectural, cultural or historic Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-41 value. In most cases, the local landmark designation affords properties a greater level of protection than similar designations at the county, state, and federal levels. As outlined in the Franklin’s Unified Development Ordinance (2004), administration of the local historic landmarks program is the responsibility of the City’s Historic Preservation Commission (Division 15 -10.0400). However, the Historic Preservation Committee has not been established, and tasks associated with management of the local historic landmarks program are not being pursued. However, it is important to note that the Franklin Historical Society, a non -profit organization created in 1969 which is affiliated with the Wisconsin State Historical Society, is very active in the community. Their mission statement indicates that “Since its beginning, the Franklin Historical Society has sought to collect, document and preserve local history, inspire reading programs at local schools, and maintain living museums in Legend Park for community awareness and fulfillment”. It can be specifically noted that the Franklin Historical Society has published the previously referenced “From Cabins to Condos, The History of Franklin, Wisconsin Since 1834”. Lack of Funding and Incentive for Conservation and Preservation Wisconsin offers some funding and economic incentives for protecting significant archaeological sites and historic resources. Through a competitive process, the state provides monies for professional services related to cultural resource planning, cataloguing and documenting historic and archeological sites for municipalities that undergo a certification process. A s a general practice, neither Wisconsin nor the federal government provides monies for rehabilitation of historic structures. Perhaps the greatest financial benefits for cultural resource preservation are made available through state and federal tax incentives: The Historic Buildings Tax Exemption (Wis. Stat. § 70.11), Archaeological Tax Exemption (Wis. Stat. § 70.11 /13m), and Federal and State Investment Tax Credits. However, to qualify for these benefits, a property must be listed on the State or National Register of Historic Places or be deemed eligible for listing. At present, only one property in Franklin qualifies for these incentives. A limited number of not -for-profit organizations dedicated to Wisconsin cultural history and heritage offer grants that support a wide range of services related to cultural history. These include the Jeffris Family Foundation, the National Trust for Historic Preservation, the Wisconsin Humanities Council as well as local foundations in Milwaukee County. The Wisc onsin Department of Transportation and Department of Natural Resources occasionally helps to fund historic preservation projects. Chapter 3: Agricultural, Natural, and Cultural Resources Franklin Comprehensive Master Plan (2009) 3-42 Cultural Resources Recommendations The recommendations for cultural resources are applicable to the entire City of Franklin, although a concentration of prehistoric and historic resources occurs in certain neighborhoods. It is recommended that following a comprehensive inventory of the condition and significance of cultural resources, specific properties and sites in certain n eighborhoods would then become a focus of more neighborhood -oriented preservation or conservation efforts. Develop a Cultural Resource Preservation Plan It is recommended that the City work with the Franklin and Wisconsin Historical Societies to generate a detailed Cultural Resource Preservation Plan that outlines goals, objectives and action strategies that promote documentation and preservation of cultural resources in Franklin , and to en