Plan-Commission-Meeting-Agenda-Packet-6-18-2026.pdf

FRANKLIN CITY HALL CHAMBERS 9229 W. LOOMIS ROAD FRANKLIN, WISCONSIN PLAN COMMISSION MEETING AGENDA Thursday, June 18, 2026 at 6:00 P.M. A. Call to Order and Roll Call B. Approval of Minutes 1. Approval of the regular meeting of May 7, 2026. C. Public Hearing Business Matters. 1. Tax Incremental District No. 11. Public Hearing regarding the proposed creation of Tax Incremental District No. 11, the proposed boundaries of the District, and the proposed Project Plan for the District. 2. Consideration and possible action on a “Resolution Establishing the Boundaries of and Approving the Project Plan for Tax Incremental District No. 11”. D. Citizen comment period. Citizens may comment upon the Business Matter items set forth on this Meeting Agenda. E. Business Matters 1. Comprehensive Master Plan. Draft updates to chapters: 1-Introduction, 2-Issues & Opportunities, 5-Land Use, as well as appendices: C-Demographic Variables, E-Issues & Opportunities and J-2026 Public Participation Results. This version is the 2nd draft to be presented to the Plan Commission, a previous version was presented in April. Item for discussion, no formal action requested. 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: July 9, 2026. City of Franklin unapproved Plan Commission Meeting May 7, 2026 Minutes A. Call to Order and Roll Call Mayor John Nelson called the May 7, 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 and Commissioners Kevin Haley , Patrick Leon and Michael Shawgo . Excused w as Commissioner Rebecca Specht . Absent was Alderwoman Michelle Eichmann. Also present were City Attorney Jesse Wesolowski and Associate Planner Luke Hamill. B. Approval of Minutes – Regular Meeting of April 23, 2026. Commissioner Haley moved and Commissioner Leon seconded a motion to approve the meeting minutes. On voice vote, all voted ‘aye’; motion carried (5-0-2). C. Public Hearing Business Matters 1. None. D. Citizen comment period. Citizens may comment upon the Business Matter items set forth on this meeting agenda. The citizen comment period opened at 6:01 p.m. and closed at 6:01 p.m. E. Business Matters 1. Signs and Lines by Stretch, Miscellaneous. Request to recommend approval of a Miscellaneous Application to allow for the installation of two monument signs within Outlots 1 & 4 of the Ryan Meadows Subdivision (TKNs 891 1085 000 & 891 1088 000). Associate Planner Hamill presented the Miscellaneous request. Commissioner Leon moved and Alderman Salous seconded a motion to recommend adoption of a resolution authorizing the installation of two monument signs within Outlots 1 & 4 of the Ryan Meadows Subdivision (TKNs 891 1085 000 & 891 1088 000). On voice vote, all voted ‘aye’; motion carried (5-0-1). F. Adjournment Commissioner Haley moved and Commissioner Leon seconded to adjourn the meeting at 6:04 pm. On voice vote, all voted ‘aye’; motion carried (5-0-2). Tax Incremental District No. 11 City of Franklin, Wisconsin Item C.1. 2 How Tax Incremental Financing Works Tax Increment Equalized Value Time (Max. 20 Years) Baseline Property Value (Approx. $73.4 million) Value After Termination of TIF (Projected $117 million) Creation Termination Captured Value Blue: Base value continues to be part of the general tax base Purple: Increased value “captured” & used to pay costs than enabled redevelopment Green: Full value reverts to general tax base 3 Proposed District Boundary • Yaskawa Campus Development Purpose • 20 Years Maximum Life • Not less than 50% by area of real property within District is suitable for mixed use development (85% of the territory meets this criteria). Required Finding 6/ 2/ 2026 4 Economic Benefits of Proposed TID • Development of headquarters, training, and manufacturing facilities for industrial robots • Approximately 576,000 square feet of new facilities will be constructed as part of the overall 1,043,000 square foot campus representing a $182 million private capital investment • Creation of over 1,000 positions with annual salaries averaging $90,000 • Long-term employment opportunities resulting from the Project will support home ownership, increased population and retail & services markets in the City • Short-term employment related to the construction and expansion of industrial facilities, and a general increase in commerce and economic activity within the City and region Project Cost Est. Cost Development Incentive (Yaskawa)* $4,200,000 Environmental Studies & Remediation Grant (WilCraft Can) $300,000 Traffic Signal Relocation Reimbursement (Yaskawa) $165,000 Utility Relocations (Allis Roller) $300,000 Interest on Advances $114,963 Administrative Expense $205,000 Total $5,284,962 5 Proposed Project Costs * Incentive to be provided on a “Pay as you go” basis • Payable solely from tax incremental revenue generated by District • Subject to annual appropriation by Common Council 6 • Traffic signal relocation from intersection of S. 41st and West Ryan to S. Oakwood Park and West Ryan  Estimate cost of $655,000 to be paid by Yaskawa with $165,000 reimbursement from City if $330,000 DOT grant awarded • Incentive Requirements (Maximum $4,200,000) *Percentage steps up to previously constructed buildings Yaskawa Development Agreement Building Occupancy Deadline Increment Percentage* Latest Payment Date 1 7/30/2028 55% 10/1/2039 2 12/31/2030 60% 10/1/2041 3+ 12/31/2033 65% 10/1/2044 7 Projected Tax Increment Construction Year Value Added Valuation Year Inflation Increment Total Increment Revenue Year Tax Rate Tax Increment 1 2026 2,483,000 2027 0 2,483,000 2028 $16.50 40,980 2 2027 3,103,750 2028 24,830 5,611,580 2029 $16.50 92,614 3 2028 6,990,750 2029 56,116 12,658,446 2030 $16.50 208,916 4 2029 6,370,000 2030 126,584 19,155,030 2031 $16.50 316,136 5 2030 6,370,000 2031 191,550 25,716,581 2032 $16.50 424,428 6 2031 0 2032 257,166 25,973,746 2033 $16.50 428,672 7 2032 4,011,150 2033 259,737 30,244,634 2034 $16.50 499,159 8 2033 8,143,850 2034 302,446 38,690,930 2035 $16.50 638,557 9 2034 0 2035 386,909 39,077,839 2036 $16.50 644,943 10 2035 0 2036 390,778 39,468,618 2037 $16.50 651,392 11 2036 0 2037 394,686 39,863,304 2038 $16.50 657,906 12 2037 0 2038 398,633 40,261,937 2039 $16.50 664,485 13 2038 0 2039 402,619 40,664,556 2040 $16.50 671,130 14 2039 0 2040 406,646 41,071,202 2041 $16.50 677,841 15 2040 0 2041 410,712 41,481,914 2042 $16.50 684,620 16 2041 0 2042 414,819 41,896,733 2043 $16.50 691,466 17 2042 0 2043 418,967 42,315,701 2044 $16.50 698,380 18 2043 0 2044 423,157 42,738,858 2045 $16.50 705,364 19 2044 0 2045 427,389 43,166,246 2046 $16.50 712,418 20 2045 0 2046 431,662 43,597,909 2047 $16.50 719,542 Totals 37,472,500 6,125,409 Future Value of Increment 10,828,946 8 Projected District Cashflow Tax Increment Other Total Dev. Incentives Other Costs Repay Advances Admin. Costs Total Annual Cumulative Liabilities 2026 0 50,000 50,000 0 0 0 50,000 50,000 0 0 51,750 2026 2027 0 965,000 965,000 0 955,000 0 10,000 965,000 0 0 374,411 2027 2028 40,980 134,020 175,000 0 165,000 0 10,000 175,000 0 0 1,211,096 2028 2029 92,614 0 92,614 0 0 40,000 10,000 50,000 42,614 42,614 1,189,514 2029 2030 208,916 0 208,916 57,082 0 50,000 10,000 117,082 91,834 134,448 3,250,493 2030 2031 316,136 0 316,136 62,894 300,000 65,000 10,000 437,894 (121,758) 12,690 3,139,130 2031 2032 424,428 0 424,428 254,657 0 150,000 10,000 414,657 9,771 22,461 4,114,040 2032 2033 428,672 0 428,672 278,637 0 150,000 10,000 438,637 (9,965) 12,496 3,695,507 2033 2034 499,159 0 499,159 281,423 0 153,983 10,000 445,406 53,753 66,249 3,265,308 2034 2035 638,557 0 638,557 415,062 0 0 10,000 425,062 213,495 279,744 2,850,246 2035 2036 644,943 0 644,943 419,213 0 0 10,000 429,213 215,730 495,474 2,431,033 2036 2037 651,392 0 651,392 423,405 0 0 10,000 433,405 217,987 713,461 2,007,629 2037 2038 657,906 0 657,906 427,639 0 0 10,000 437,639 220,267 933,728 1,579,990 2038 2039 664,485 0 664,485 431,915 0 0 10,000 441,915 222,570 1,156,298 1,148,074 2039 2040 671,130 0 671,130 361,716 0 0 25,000 386,716 284,413 1,440,711 786,358 2040 2041 677,841 0 677,841 365,334 0 0 0 365,334 312,508 1,753,219 421,024 2041 2042 684,620 0 684,620 140,262 0 0 0 140,262 544,358 2,297,576 280,763 2042 2043 691,466 0 691,466 141,664 0 0 0 141,664 549,801 2,847,378 139,098 2043 2044 698,380 0 698,380 139,098 0 0 0 139,098 559,282 3,406,660 0 2044 2045 705,364 0 705,364 0 0 0 0 0 705,364 4,112,024 0 2045 2046 712,418 0 712,418 0 0 0 0 0 712,418 4,824,442 0 2046 2047 719,542 0 719,542 0 0 0 0 0 719,542 5,543,984 0 2047 Totals 10,828,946 1,149,020 11,977,967 4,200,000 1,420,000 608,983 205,000 6,433,983 5,543,984 Totals Year Revenues Expenditures Year Balances Cashflow projection indicated TID will recover costs in 2040, seven years prior to end of 20-year maximum life 6/ 2/ 2026 9 Timeline June 11, 2026 Organizational Joint Review Board meeting June 18, 2026 Plan Commission public hearing and consideration of resolution recommending creation of TID 11 to Common Council July 7, 2026 Common Council meeting to consider approval of resolution creating TID 11 Late - July Final Joint Review Board meeting to consider approval of TID 11 creation STATE OF WISCONSIN CITY OF FRANKLIN MILWAUKEE COUNTY PLAN COMMISSION RESOLUTION NO. 2026-____ A RESOLUTION ESTABLISHING THE BOUNDARIES OF AND APPROVING THE PROJECT PLAN FOR TAX INCREMENTAL DISTRICT NO. 11 WHEREAS, the City of Franklin (the “City”) has determined that use of Tax Incremental Financing is required to promote development and redevelopment within the City; and WHEREAS, Tax Incremental District No. 11 (the “District”) is proposed to be created by the City in accordance with the provisions of Wisconsin Statutes Section 66.1105 (the "Tax Increment Law"); and WHEREAS, a Project Plan for the District has been prepared that includes: a. A statement listing of the kind, number and location of all proposed public works or improvements within the District, or to the extent provided in Wisconsin Statutes Sections 66.1105(2)(f)1.k. and 66.1105(2)(f)1.n., outside of the District; b. An economic feasibility study; c. A detailed list of estimated project costs; d. A description of the methods of financing all estimated project costs and the time when the related costs or monetary obligations are to be incurred; e. A map showing existing uses and conditions of real property in the District; f. A map showing proposed improvements and uses in the District; g. Proposed changes of zoning ordinances, master plan, map, building codes and City ordinances; h. A list of estimated non-project costs; i. A statement of the proposed plan for relocation of any persons to be displaced; j. A statement indicating how the District promotes the orderly development of the City; k. An opinion of the City Attorney or of an attorney retained by the City advising that the plan is complete and complies with Wisconsin Statutes Section 66.1105(4)(f); and WHEREAS, prior to its publication, a copy of the notice of public hearing was sent to the chief executive officers of Milwaukee County, the Franklin Public School District, and the Milwaukee Area Technical College District, and any other entities having the power to levy taxes on property located within the District, in accordance with the procedures specified in the Tax Increment Law; and WHEREAS, prior to its publication, a copy of the notice of public hearing was also sent to the owners of all property in the proposed District; and TAX INCREMENTAL DISTRICT NO. 11 RESOLUTION NO. 2026-____ Page 2 WHEREAS, in accordance with the procedures specified in the Tax Increment Law, the Plan Commission, on June 18, 2026 held a public hearing concerning the proposed creation of the District, its proposed boundaries and its proposed Project Plan, providing interested parties a reasonable opportunity to express their views thereon. NOW, THEREFORE, BE IT RESOLVED by the Plan Commission of the City of Franklin that: 1. It recommends to the Common Council that Tax Incremental District No. 11 be created with boundaries as designated in Exhibit A of this Resolution. 2. It approves and adopts the Project Plan for the District, attached as Exhibit B, and recommends its approval to the Common Council. 3. Creation of the District promotes orderly development in the City. Introduced at a regular meeting of the Plan Commission of the City of Franklin this 18th day of June, 2026. Passed and adopted at a regular meeting of the Plan Commission of the City of Franklin this 18th day of June, 2026. APPROVED: _________________________________ John R. Nelson, Chairman ATTEST: ___________________________________ Shirley J. Roberts, City Clerk AYES ______ NOES ______ ABSENT ______ June 18, 2026 PROJECT PLAN City of Franklin, Wisconsin Tax Incremental District No. 11 Franklin Business Park Prepared by: Ehlers N19W24400 Riverwood Drive, Suite 100 Waukesha, WI 53188 BUILDING COMMUNITIES. IT’S WHAT WE DO. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 2 KEY DATES Organizational Joint Review Board Meeting Held: June 11, 2026 Public Hearing Held: June 18, 2026 Approval by Plan Commission: June 18. 2026 Adoption by Common Council: July 7, 2026 Approval by the Joint Review Board: TBD TABLE OF CONTENTS Executive Summary.................................................................................................................................. 3 Preliminary Map of Proposed District Boundary .......................................................................... 6 Map Showing Existing Uses and Conditions ................................................................................... 9 Preliminary Parcel List and Analysis .................................................................................................. 11 Equalized Value Test ............................................................................................................................. 14 Statement Listing the Kind, Number and Location of All Proposed Public Works or Improvements Within the District ..................................................................................................... 15 Map Showing Proposed Improvements and Uses ...................................................................... 19 Detailed List of Estimated Project Costs ....................................................................................... 22 Economic Feasibility Study, Description of the Methods of Financing Estimated Project Costs and the Time When Related Costs or Monetary Obligations are to be Incurred ....................................................................................................................................................... 23 Annexed Property ...................................................................................................................................28 Estimate of Property to Be Devoted to Retail Business ..........................................................28 Proposed Changes of Zoning Ordinances, Master Plan, Map, Building Codes and City Ordinances .................................................................................................................................................28 Statement of the Proposed Method for the Relocation of any Persons to be Displaced ....................................................................................................................................................................... 29 How Creation of the Tax Incremental District Promotes the Orderly Development of the City ....................................................................................................................................................... 29 List of Estimated Non-Project Costs .............................................................................................. 30 Legal Opinion Advising Whether the Plan is Complete and Complies with Wis. Stat. § 66.1105(4)(f) ............................................................................................................................................... 31 Calculation of the Share of Projected Tax Increments Estimated to be Paid by the Owners of Property in the Overlying Taxing Jurisdictions .....................................................33 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 3 SECTION 1: Executive Summary DESCRIPTION OF DISTRICT Tax Incremental District (“TID”) No. 1 1 (“District”) is a proposed Industrial District comprising approximately 114 acres located in the Franklin Business Park and adjoining lands to the north. The District will be created to pay costs related to Yaskawa Electric Corporation’s (“Yaskawa”) development of a new campus in the District (“Project”). The new campus will include a headquarters, training, and manufacturing facilities for industrial robots . Approximately 576,000 square feet of new facilities will be constructed as part of the overall 1,043,000 square foot campus representing a $182 million private capital investment that is expected to create over 1,000 positions with annual salaries averaging $90,000. The employment opportunities resulting from the Project will support home ownership, increased population and retail & services markets in the City . In addition to the incremental property value that will be created because of this capital investment, and the long- term employment opportunities, the City expects the Project will result in short-term employment related to the construction and expansion of industrial facilities, and a general increase in commerce and economic activity within the City and region. AUTHORITY The City is creating the District under the provisions of Wis. Stat. § 66.1105. ESTIMATED TOTAL PROJECT COST EXPENDITURES The City anticipates making total expenditures of approximately $ 5.3 million (“Project Costs”) to undertake the projects listed in this Project Plan (“Plan”). Project Costs include an estimated $4.2 million in development incentives, $165,000 to reimburse Yaskawa for the portion of the cost of relocating traffic signals, $300,000 for sanitary sewer and water main relocations at the Allis Roller site (within ½ mile) , $300,000 for a site remediation grant for WilCraft Can (within ½ mile), $114,963 in interes t on repayment of advances , and $205,000 in City administrative expense related to creation and administration of the District. INCREMENTAL VALUATION The City projects that new land and improvements value of approximately $37.5 million will result from the Project. Creation of this additional value will be made possible by the Project Costs made within the District. A table detailing assumptions as to the development timing and associated values is included in the Economic Feasibility Study located within this Plan. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 4 EXPECTED TERMINATION OF DISTRICT Based on the Economic Feasibility Study located within Section 9 of this Plan, the City anticipates that the District will generate sufficient tax increment to pay all Project Costs within 13 of its allowable 20 years. SUMMARY OF FINDINGS As required by Wis. Stat. § 66.1105, and as documented in this Plan and the exhibits contained and referenced herein, the following findings are made: 1. That “but for” the creation of this District, the development projected to occur as detailed in this Plan: 1) would not occur; or 2) would not occur in the manner, at the values, or within the timeframe desired by the City. In reaching this determination, the City has considered the substantial private capital investment that will be made to expand industrial operations in the District, and the negotiations with the company related to the need for City participation in the Project. 2. The economic benefits of the District, as measured by increased employment, business and personal income, and property value, are sufficient to compensate for the cost of the improvement s. In making this determination, the City has considered the $1 82 million private capital investment within the proposed District that is expected to create over 1,000 positions with annual salaries averaging $ 90,000. as well as the benefits of short -term employment related to the construction and expansion of industrial facilities, and a general increase in commerce and economic activity within the City and region. 3. The benefits of the proposal outweigh the anticipated tax increments to be paid by the owners of property in the overlying taxing jurisdictions. As required by Wis. Stat. § 66.1105(4)(i)4., a calculation of the share of projected tax increments estimated to be paid by the owners of property in the overlying taxing jurisdictions has been prepared and can be found in this Plan. However, because the Project would not occur without the use of tax incremental financing, these tax increments would not be paid but for creation of the District. Accordingly, the City finds that the benefits expected to be realized as set forth in this Plan outweigh the value of the tax increments to be invested in the Project. 4. Not less than 50% by area of the real property within the District is suitable for industrial sites as defined by Wis. Stat. § 66.1101 and has been zoned for industrial use. Any real property within the District that is found suitable for industrial sites and is zoned for industrial use at the time of creation of the District will remain zoned for industrial use for the life of the District. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 5 5. Based on the foregoing finding, the District is designated as an industrial district. 6. The Project Costs relate directly to promoting industrial development in the District, consistent with the purpose for which the District is created. 7. Improvements to be made in the District are likely to significantly enhance the value of substantially all of the other real property in the District. 8. The equalized value of taxable property in the District, plus the incremental value of all existing tax incremental districts within the City does not exceed 12% of the total equalized value of taxable property within the City. 9. The City estimates that less than 35% of the territory within the District will be devoted to retail business at the end of the District’s maximum expenditure period, pursuant to Wis. Stat. § 66.1105(5)(b). 10. That there are no parcels to be included within the District that were annexed by the City within the preceding three-year period. 11. The Plan for the District is feasible and is in conformity with the Master Plan of the City. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 6 SECTION 2: Preliminary Maps of Proposed District Boundary Maps Found on Following Pages. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 7 Map Key Parcel # Map Key P arcel # Map Key Parcel # 1 881-9998-001 7 900- 0007-004 13 900-0009-007 2 881-9999-001 8 900-0009-021 14 900-0009-006 3 900-0009-022 9 900-0009-020 15 900-0009-005 4 900-0009-018 10 900-0002-002 16 900-0012-002 5 900-0009-019 11 900-0005-001 17 900-0012-003 6 900-0009-011 12 900-0005-003 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 8 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 9 SECTION 3: Map Showing Existing Uses and Conditions Map Found on Following Page. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 10 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 11 SECTION 4: Preliminary Parcel List and Analysis The table below identifies the parcels to be included in the District , with identification of the acres zoned and suitable for industrial use. Total acreage of existing public rights-of-way included within the proposed District boundary are also listed. A total of 113.51 acres, to include existing rights-of-way, lie within the proposed District boundary. Of this total, 96.95 acres, or 85% of the total District acreage is zoned and suitable for industrial development, meeting the minimum requirement of 50%. Table continues on next page. N/A ROW Areas 6.80 1 881-9998-001 5012 W RYAN RD DMN/RYAN, LLC 5.64 2 881-9999-001 0 W RYAN RD DMN/RYAN, LLC 4.12 3 900-0009-022 5000 W ASHLAND WAY FRANKLIN CORPORATE CENTER, LLC 9.27 9.27 4 900-0009-018 4800 W ASHLAND WAY YASKAWA AMERICA, INC 5.16 5.16 5 900-0009-019 2 W WORLD PACKAGING CIR YASKAWA AMERICA, INC 17.48 17.48 6 900-0009-011 9559 S OAKWOOD PARK DR YASKAWA AMERICA, INC 4.02 4.02 7 900-0007-004 9670 S FRANKLIN DR OAK BROOK APPLE, LLC 9.51 9.51 8 900-0009-021 4801 W ASHLAND WAY YASKAWA AMERICA, INC 6.64 6.64 9 900-0009-020 1 W WORLD PACKAGING CIR YASKAWA AMERICA, INC 13.56 13.56 10 900-0002-002 5075 W AIRWAYS AVE FRANKLIN OFFICE PARTNERS, LLC 2.96 2.96 11 900-0005-001 9750 S FRANKLIN DR CARMA LABORATORIES, INC 3.45 3.45 12 900-0005-003 9780 S FRANKLIN DR 9780 FRANKLIN DRIVE, LLC 3.47 3.47 13 900-0009-007 4710 W BASSWOOD DR YASKAWA AMERICA, INC 5.67 5.67 Map Reference Number Parcel Number Address Owner Acres Zoned and Suitable for Ind. Develop. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 12 The table on the following page provides January 1, 2025, assessed values of the land and improvements for each parcel to be included in the District. For purpose of estimating District base value, the prior year’s actual assessment ratio of 90.76% is used. Based on that ratio, the total equalized, or fair market value of land and improvements within the District as of January 1, 202 5, was $73,428,400. Actual base value will be certified using January 1, 2026, assessed values and assessment ratio. 14 900-0009-006 4620 W BASSWOOD DR AFLP FRANKLIN, LLC 5.30 5.30 15 900-0009-005 9705 S OAKWOOD PARK DR TI INVESTORS OF FRANKLIN III, LLC 5.71 5.71 16 9 00-0012-002 4403 W BASSWOOD DR GENERATION II, LLC 2.40 2.40 17 900-0012-003 0 S OAKWOOD PARK DR GENERATION II, LLC 2.34 2.34 TOTALS 113.51 96.95 Per centage of TID Area Zoned and Suitable for Industrial Development (at least 50%) 85% Percentage of TID Area Not Zoned and Suitable for Industrial Development 15% Total Area 100% Map Reference Number Parcel Number Address Owner Acres Zoned and Suitable for Ind. Develop. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 13 Calculation of Estimated Base Value 1 Parcel Land Improvement Total Land Improvement Total 881-9998-001 377,100 0 377,100 415,500 0 415,500 881-9999-001 135,900 0 135,900 149,700 0 149,700 900-0009-022 784,700 5,371,300 6,156,000 864,600 5,918,200 6,782,800 900-0009-018 482,200 0 482,200 531,300 0 531,300 900-0009-019 3,383,100 14,563,400 17,946,500 3,727,500 16,046,200 19,773,700 900-0009-011 597,700 0 597,700 658,600 0 658,600 900-0007-004 801,000 4,248,000 5,049,000 882,600 4,680,500 5,563,100 900-0009-021 589,900 0 589,900 650,000 0 650,000 900-0009-020 2,625,300 14,459,100 17,084,400 2,892,600 15,931,200 18,823,800 900-0002-002 320,800 30,800 351,600 353,500 33,900 387,400 900-0005-001 384,400 2,314,500 2,698,900 423,500 2,550,100 2,973,600 900-0005-003 386,100 711,600 1,097,700 425,400 784,100 1,209,500 900-0009-007 518,700 0 518,700 571,500 0 571,500 900-0009-006 491,900 5,527,100 6,019,000 542,000 6,089,800 6,631,800 900-0009-005 522,300 5,178,700 5,701,000 575,500 5,706,000 6,281,500 900-0012-002 267,300 1,293,000 1,560,300 294,500 1,424,600 1,719,100 900-0012-003 277,300 0 277,300 305,500 0 305,500 TOTALS 12,945,700 53,697,500 66,643,200 14,263,800 59,164,600 73,428,400 1) Estimated based on values as of January 1, 2025. Actual base value will be as of January 1, 2026. 2) Calculation based on aggregate assessment ratio of 90.76%. Assessed Value Equalized Value 2 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 14 SECTION 5: Equalized Value Test The following calculations demonstrate that the City expects to be in compliance with Wis. Stat. § 66.1105(4)(gm)4.c., which requires that the equalized value of the taxable property in the proposed District, plus the value increment of all existing tax incremental districts, does not exceed 12% of the total equalized value of taxable property within the City . The equalized value of the increment of existing tax incremental districts within the City, plus the base value of the proposed District, totals $441,097,400. This value is less than the maximum of $869,462,904 in equalized value that is permitted for the City. Calculation of City Equalized Value Limit City TID IN Equalized Value (Jan. 1, 2025) 7,245,524,200$ TID Valuation Limit @ 12% of Above Value 869,462,904$ Calculation of Value Subject to Limit Estimated Base Value of Territory to be Included in District 73,428,400$ Incremental Value of Existing Districts (Jan. 1, 2025) 367,669,000$ Total Value Subject to 12% Valuation Limit 441,097,400$ Tot al Percentage of TID IN Equalized Value 6.09% Residual Value Capacity of TID IN Equalized Value 428,365,504$ City of Franklin, Wisconsin Tax Increment District #11 (Franklin Business Park) Valuation Test Compliance Calculation Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 15 SECTION 6: Statement Listing the Kind, Number and Location of All Proposed Public Works or Improvements Within the District Project Costs are any expenditure made, estimated to be made, or monetary obligations incurred or estimated to be incurred as outlined in this Plan. Project Costs will be diminished by any income, special assessments, or other revenues, including user fees or charges, other than tax increments, received or reasonably expected to be received in connection with the implementation of the Plan. If Project Costs incurred benefit territory outside the District, a proportionate share of the cost is not a Project C ost. Costs identified in this Plan are preliminary estimates made prior to design considerations and are subject to change after planning, design and construction is completed. With all Project Costs, the costs of engineering, design, survey, inspection, materials, construction, restoring property to its original condition, apparatus necessary for public works, legal and other consultant fees, testing, environmental studies, permits, updating City ordinances and plans, judgments or claims for damages and other expenses are included as Project Costs. The following is a list of public works and other tax incremental financing eligible Project Costs that the City expects to make, or may need to make, in conjunction with the implementation of the District’s Plan. The map found in Section 7 of this Plan al ong with the Detailed List of Project Costs found in Section 8 provide additional information as to the kind, number and location of potential Project Costs. Property, Right-of-Way and Easement Acquisition Acquisition of Rights-of-Way The City may need to acquire property to allow for installation of streets, driveways, sidewalks, utilities, stormwater management practices and other public infrastructure. Costs incurred by the City to identify, negotiate and acquire rights-of-way are eligible Project Costs. Acquisition of Easements The City may need to acquire temporary or permanent easements to allow for installation and maintenance of streets, driveways, sidewalks, utilities, stormwater management practices and other public infrastructure. Costs incurred by the City to identify, negotiate and acquire easement rights are eligible Project Costs. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 16 Relocation Costs If relocation expenses are incurred in conjunction with the acquisition of property, those expenses are eligible Project Costs. These costs may include but are not limited to preparation of a relocation plan; allocations of staff time; legal fees; publication of notices; obtaining appraisals; and payment of relocation benefits as required by Wis. Stat. Chapter 32 and Wis. Admin. Code ADM 92. Utilities Sanitary Sewer System Improvements To allow development to occur, the City may need to construct, alter, rebuild or expand sanitary sewer infrastructure within the District. Eligible Project Costs include, but are not limited to, construction, alteration, rebuilding or expansion of collection mains; manholes and cleanouts; service laterals; force mains; interceptor sewers; pumping stations; lift stations; wastewater treatment facilities; and all related appurtenances. To the extent sanitary sewer projects undertaken within the Distr ict provi de direct benefit to land outside of the District, the City will make an allocation of costs based on such benefit. Those costs corresponding to the benefit allocated to land within the District, and necessitated by the implementation of the Project Plan, are eligible Project Costs. Implementation of the Project Plan may also require that the City construct, alter, rebuild or expand sanitary sewer infrastructure located outside of the District. That portion of the costs of sanitary sewer system projects undertaken outside the District which are necessitated by the implementation of the Project Plan are eligible Project Costs. Water System Improvements To allow development to occur, the City may need to construct, alter, rebuild or expand water system infrastructure within the District. Eligible Project Costs include, but are not limited to, construction, alteration, rebuilding or expansion of distribution mains; manholes and valves; hydrants; service laterals; pumping stations; wells; water treatment facilities; storage tanks and reservoirs; and all related appurtenances. To the extent water system projects undertaken within the District provi de direct benefit to land outside of the District, the City will make an allocation of costs based on such benefit. Those costs corresponding to the benefit allocated to land within the District, and necessitated by the implementation of the Project Plan, are eligible Project Costs. Implementation of the Project Plan may also require that the City construct, alter, rebuild or expand water system infrastructure located outside of the District. That portion of the costs of water system projects undertaken outside the District which are Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 17 necessitated by the implementation of the Project Plan are eligible Project Costs. Streets and Streetscape Street Improvements To allow development to occur, the City may need to construct or reconstruct streets, highways, alleys, access drives and parking areas. Eligible Project Costs include, but are not limited to: excavation; removal or placement of fill; construction of road base; asphalt or concrete paving or repaving; installation of curb and gutter; installation of sidewalks and bicycle lanes; installation of culverts, box culverts and bridges; rail crossings and signals; utility relocation, to include burying overhead util ity lines; street lighting; installation of traffic control signage and traffic signals; pavement marking; right-of-way restoration; installation of retaining walls; and installation of fences, berms, and landscaping. Community Development Cash Grants (Development Incentives) The City may enter into agreements with property owners, lessees, or developers of land located within the District for sharing costs to encourage the desired kind of improvement and assure tax base is generated sufficient to recover Project Costs. No cash grants will be provided until the City executes a developer agreement with the recipient of the cash grant. Any payments of cash grants made by the City are eligible Project Costs. Projects Outside the Tax Increment District Pursuant to Wis. Stat. § 66.1105(2)(f)1.n, the City may undertake projects within territory located within one -half mile of the boundary of the District provided that: 1) the project area is located within the City’s corporate boundaries; and 2) the projects are approved by the Joint Review Board. The cost of projects completed outside the District pursuant to this section are eligible project costs and may include any project cost that would otherwise be eligible if undertaken within the District. The City intends to make the following project cost expenditures outside the District: • The City will need to relocate sewer and water mains and hydrants to accommodate an expansion of Allis Roller. The relocations are necessary to provide continued utility services to the District. • The City will need to relocate traffic signals at the intersection of West Ryan Road and South Oakwood Park Drive to accommodate traffic from the Project. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 18 • The City may fund studies and provide a remediation grant to property located outside the District (WilCraft Can) that promotes the industrial expansion objectives of the District. Professional Service and Organizational Costs The costs of professional services rendered, and other costs incurred, in relation to the creation, administration and termination of the District, and the undertaking of the projects contained within this Plan, are eligible Project Costs. Professional services include but are not limited to architectural; environmental; planning; engineering; legal; audit; financial; and the costs of informing the public with respect to the creation of the District and the implementation of the Plan. Administrative Costs The City may charge the District as eligible Project Costs reasonable allocations of administrative costs, including, but not limited to, employee salaries. Costs allocated will bear a direct connection to the time spent by City employees relating to the implementation of the Plan. Financing Costs Interest expense, debt issuance expenses, redemption premiums, and any other fees and costs incurred in conjunction with obtaining financing for projects undertaken under this Plan are eligible Project Costs. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 19 SECTION 7: Map Showing Proposed Improvements and Uses Maps Found on Following Pages. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 20 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 21 Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 22 SECTION 8: Detailed List of Estimated Project Costs The following list identifies the Project Costs that the City currently expects to incur in implementing the District’s Plan. All projects identified and related costs reflect the best estimates available as of the date of preparation of this Plan. All costs are preliminary estimates and may increase or decrease. Certain Project Costs listed may become unnecessary, and other Project Costs not currently identified may need to be made. (Section 6 details the general categories of eligible Project Costs). Chan ges in Project Cost totals or the types of Project Costs to be incurred will not require that this Plan be amended. This Plan is not meant to be a budget nor an appropriation of funds for specific Project Costs, but a framework within which to manage Project Costs. Project Name/Type Estimate Timing Environmental Studies and Remediation Grant - WilCraft Can 300,000 2027 Traffic Signal Relocation Reimbursement - Yaskawa 165,000 2028 Utility Relocations - Allis Roller 300,000 2031 City Administrative Costs 205,000 2026-2040 Interest on Advances 114,963 2029-2034 Development Incentives - Yaskawa 4,200,000 2030-2044 Total Projects 5,284,962 City of Franklin, Wisconsin Tax Increment District #11 (Franklin Business Park) Estimated Project List Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 23 SECTION 9: Economic Feasibility Study, Description of the Methods of Financing Estimated Project Costs and the Time When Related Costs or Monetary Obligations are to be Incurred This Section includes a forecast of the valuation increases expected within the District, the associated tax increment collections, a summary of how Project Costs would be financed, and a projected cash flow demonstrating that the District is economically feasible. Key Assumptions The Project Costs the City plans to make are expected to create $ 37.5 million in incremental value by January 1, 20 34. Estimated valuations and timing for construction of the Project are included in Table 1. Assuming the City’s current equalized TID Interim tax rate of $1 6.50 per thousand of equalized value, and annual 1% economic appreciation in property values , the Project would generate $10.8 million in incremental tax revenue over the 20-year term of the District as shown in Table 2. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 24 Table 1 – Development Assumptions Building One1 Building Two2 Building Three3 Parking Garage3 Annual Total 1 2026 2,483,000 2,483,000 2026 1 2 2027 3,103,750 3,103,750 2027 2 3 2028 620,750 6,370,000 6,990,750 2028 3 4 2029 6,370,000 6,370,000 2029 4 5 2030 6,370,000 6,370,000 2030 5 6 2031 0 2031 6 7 2032 2,209,350 1,801,800 4,011,150 2032 7 8 2033 4,485,650 3,658,200 8,143,850 2033 8 9 2034 0 2034 9 10 2035 0 2035 10 11 2036 0 2036 11 12 2037 0 2037 12 13 2038 0 2038 13 14 2039 0 2039 14 15 2040 0 2040 15 16 2041 0 2041 16 17 2042 0 2042 17 18 2043 0 2043 18 19 2044 0 2044 19 20 2045 0 2045 20 Totals 6,207,500 19,110,000 6, 695,000 5,460,000 37,472,500 Bldg. Sq. Ft 95,500 294,000 103,000 84,000 Value/Sq. F 65$ 65$ 65$ 65$ @ $65 Sq. F 6,207,500 19,110,000 6,695,000 5,460,000 Notes: 1Occupancy must be issued prior to July 30, 2028 to be eligible for development incentive. 2Occupancy must be issued prior to December 31, 2030 to be eligible for development incentive. 3Occupancy must be issued prior to December 31, 2033 to be eligible for development incentive. Construction Year Construction Year City of Franklin, Wisconsin Tax Increment District #11 (Franklin Business Park) Development Assumptions Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 25 Table 2 – Tax Increment Projection Worksheet Type of District Base Value 73,428,400 District Creation Date Appreciation Factor 1.00% Valuation Date Jan 1, 2026 Base Tax Rate $16.50 Max Life (Years) Rate Adjustment Factor Expenditure Period/Termination 15 7/7/2041 Revenue Periods/Final Year 20 2047 Extension Eligibility/Years Yes 3 Eligible Recipient District Construction Year Value Added Valuation Year Inflation Increment Total Increment Revenue Year Tax Rate Tax Increment 1 2026 2,483,000 2027 0 2,483,000 2028 $16.50 40,980 2 2027 3,103,750 2028 24,830 5,611,580 2029 $16.50 92,614 3 2028 6,990,750 2029 56,116 12,658,446 2030 $16.50 208,916 4 2029 6,370,000 2030 126,584 19,155,030 2031 $16.50 316,136 5 2030 6,370,000 2031 191,550 25,716,581 2032 $16.50 424,428 6 2031 0 2032 257,166 25,973,746 2033 $16.50 428,672 7 2032 4,011,150 2033 259,737 30,244,634 2034 $16.50 499,159 8 2033 8,143,850 2034 302,446 38,690,930 2035 $16.50 638,557 9 2034 0 2035 386,909 39,077,839 2036 $16.50 644,943 10 2035 0 2036 390,778 39,468,618 2037 $16.50 651,392 11 2036 0 2037 394,686 39,863,304 2038 $16.50 657,906 12 2037 0 2038 398,633 40,261,937 2039 $16.50 664,485 13 2038 0 2039 402,619 40,664,556 2040 $16.50 671,130 14 2039 0 2040 406,646 41,071,202 2041 $16.50 677,841 15 2040 0 2041 410,712 41,481,914 2042 $16.50 684,620 16 2041 0 2042 414,819 41,896,733 2043 $16.50 691,466 17 2042 0 2043 418,967 42,315,701 2044 $16.50 698,380 18 2043 0 2044 423,157 42,738,858 2045 $16.50 705,364 19 2044 0 2045 427,389 43,166,246 2046 $16.50 712,418 20 2045 0 2046 431,662 43,597,909 2047 $16.50 719,542 Totals 37,472,500 6,125,409 Future Value of Increment 10,828,946 Notes: 1Tax rate shown is actual TID interim rate for the 2025/26 levy per DOR Form PC-202 (Tax Increment Collection Worksheet). City of Franklin, Wisconsin Tax Increment District #11 (Franklin Business Park) Tax Increment Projection Worksheet Industrial July 7, 2026 20 No Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 26 Financing and Implementation Based on the District’s January 1, 2026, base value date, tax increment will first be collected for the 2028 budget year. The City expects to incur costs for a remediation grant as well as administrative expense prior to 2028 and will advance funds to the District as needed to pay those costs. The District will repay the advanced funds with interest, with full repayment projected within eight years of the initial advance. The City will reimburse Yaskawa for a portion of the cost of relocating traffic signals and pay the cost of relocation of utilities in the vicinity of Allis Roller, from cash projected to be available from tax increment collections. If tax increment collections are not sufficient to pay these costs at the time they are incurred, the City may advance additional funds, to be recovered with interest. Development incentives for Yaskawa will be made on a “pay as you go” basis from tax increment generated by the additional facilities to be constructed. The source of these payments is solely limited to the tax increment, and payments will be subject to annual appropriation. I ncentive payments are based on a percentage of the tax increment generated, ranging from 55% - 65%, for a period of ten years, for any new or expanded facility that receives occupancy by dates specified in the development agreement . No payments will be made after the 20 44 calendar year, and total payments will be subject to a cap of $4,200,000. Based on the Project Cost expenditures as included within the cash flow exhibit (Table 3), the District is projected to accumulate sufficient funds by the year 2040 to pay off all Project cost liabilities and obligations. The projected closure is based on the various assumptions noted in this Plan and will vary dependent on actual Project Costs incurred and the actual amount of tax increments collected. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 27 Table 3 – Cash Flow City of Franklin, Wisconsin Tax Increment District #11 (Franklin Business Park) Cash Flow Projection Building Building B uilding Parking One Two Thr ee Structure Year MRO1 MRO1 MRO1 MRO1 Year 2026 0 50,000 50, 000 50,000 50,000 0 0 51,750 2026 2027 0 655,000 310,000 965, 000 655,000 300,000 10,000 965,000 0 0 374,411 2027 2028 40,980 134,020 175, 000 165,000 10,000 175,000 0 0 1,211,096 2028 2029 92,614 92, 614 40,000 10,000 50,000 42,614 42,614 1,189,514 2029 2030 208,916 208, 916 55% 57,082 50,000 10,000 117,082 91,834 134,448 3,250,493 2030 2031 316,136 316, 136 60% 62,894 300,000 65,000 10,000 437,894 (121,758) 12,690 3,139,130 2031 2032 424,428 424, 428 60% 63,523 191,134 150,000 10,000 414,657 9,771 22,461 4,114,040 2032 2033 428,672 428, 672 65% 69,504 209,133 150,000 10,000 438,637 (9,965) 12,496 3,695,507 2033 2034 499,159 499, 159 65% 70,199 211,224 153,983 10,000 445,406 53,753 66,249 3,265,308 2034 2035 638,557 638, 557 65% 70,901 213,336 72,059 58,766 10,000 425,062 213,495 279,744 2,850,246 2035 2036 644,943 644, 943 65% 71,610 215,469 72,779 59,354 10,000 429,213 215,730 495,474 2,431,033 2036 2037 651,392 651, 392 65% 72,326 217,624 73,507 59,947 10,000 433,405 217,987 713,461 2,007,629 2037 2038 657,906 657, 906 65% 73,050 219,800 74,242 60,547 10,000 437,639 220,267 933,728 1,579,990 2038 2039 664,485 664, 485 65% 73,780 221,998 74,984 61,152 10,000 441,915 222,570 1,156,298 1,148,074 2039 2040 671,130 671, 130 65% 224,218 75,734 61,764 25,000 386,716 284,413 1,440,711 786,358 2040 2041 677,841 677,841 65% 226,461 76,492 62,381 365,334 312,508 1,753,219 421,024 2041 2042 684,620 684, 620 65% 77,256 63,005 140,262 544,358 2,297,576 280,763 2042 2043 691,466 691, 466 65% 78,029 63,635 141,664 549,801 2,847,378 139,098 2043 2044 698,380 698, 380 65% 78,809 60,289 139,098 559,282 3,406,660 0 2044 2045 705,364 705, 364 0 705,364 4,112,024 0 2045 2046 712,418 712, 418 0 712,418 4,824,442 0 2046 2047 719,542 719, 542 0 719,542 5,543,984 0 2047 Total 10,828,946 655, 000 494,020 11,977,967 684,869 2,150,398 753,891 610,841 655,000 165,000 300,000 300,000 608,983 205,000 6,433,983 Total Maximum Total Incentive of $4,200,000 4,200,000 Notes: Yaskawa Payment of T raffic Signal Relocation City Reimb. For Traffic Sig nal Relocation Projected TID Closure Annual CumulativeAdmin. Liabilities Outstanding Total Expenditures Expenditures % Increment Applied1 Advance Repayment Traffic Signal Relocation 155% of the tax increment generated annually by the first building receiving occupancy will be paid as an incentive for a term of 10 years. On occupancy of the second building, that building will receive 60% of the tax increment generated by that building for a term of 10 years, and the 60% will be applied to the first building for the remaining term in which it is eligible to receive payments. The third and subsequent buildings will receive 65% under the same terms, which percentage shall also then be applied to the first two buildings for their remaining term of payment. Projected Revenues Tax Increments Interfund Advances Total Revenues Balances Environmental Studies & R emediation Grant Potential Allis Roller Utility Re location Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 28 SECTION 10: Annexed Property A tax incremental district cannot include annexed territory unless at least three years have elapsed since the annexation, or certain other requirements are met. None of the property within the proposed District boundary was annexed during the past three years. SECTION 11: Estimate of Property to Be Devoted to Retail Business Pursuant to Wis. Stat. § 66.1105(5)(b), the City estimates that less than 35% of the territory within the District will be devoted to retail business at the end of the District’s maximum expenditure period. SECTION 12: Proposed Changes of Zoning Ordinances, Master Plan, Map, Building Codes and City Ordinances Zoning Ordinances The proposed Plan is in general conformance with the City’s current zoning ordinances. Individual properties may require rezoning at the time of development. Land within the District zoned industrial at the time of District creation will remain in a zoning classification suitable for industrial sites for the life of the District. Master (Comprehensive) Plan and Map The proposed Plan is in general conformance with the City’s Comprehensive Plan identifying the area as appropriate for industrial development. Building Codes and Ordinances Development within the District will be required to conform to State Building Codes and will be subject to the City's permitting and inspection procedures. The proposed Plan conforms to all relevant State and local ordinances, plans, and codes. No changes to the existing regulations are proposed or needed. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 29 SECTION 13: Statement of the Proposed Method for the Relocation of any Persons to be Displaced Should implementation of this Plan require relocation of individuals or business operations, relocations will be handled in compliance with Wis. Stat. Chapter 32 and Wis. Admin. Code ADM 92. SECTION 14: How Creation of the Tax Incremental District Promotes the Orderly Development of the City Creation of the District and the implementation of the projects in its Plan will promote the orderly development of the City by creating new industrial sites, providing necessary public infrastructure , and providing appropriate financial incentives for private development projects . Through use of tax increment financing, the City can attract new investment that results in increased tax base. Development will occur in an orderly fashion in accordance with approved plans so that the Projects will be c ompatible with adjacent land uses. The industrial expansion project involves a $1 82 million private capital investment within the proposed District that is expected to create over 1,000 positions with annual salarie s averaging $ 90,000, which will support home ownership, increased population and retail & services markets in the City. In addition to the incremental property value that will be created because of this capital investment, and the long-term employment opportunities, the City expects the Project will result in short -term employment related to the construction and expansion of industrial facilities, and a general increase in commerce and economic activity within the City and region. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 30 SECTION 15: List of Estimated Non-Project Costs Non-project costs are public works projects which only partly benefit the District. Costs incurred that do not benefit the District may not be paid with tax increments. Examples of non-project costs are: • A public improvement made within the District that also benefits property outside the District. That portion of the total Project Costs allocable to properties outside of the District would be a non- project cost. • A public improvement made outside the District that only partially benefits property within the District. That portion of the total Project Costs allocable to properties outside of the District would be a non - project cost. • Projects undertaken within the District as part of the implementation of this Project Plan, the costs of which are paid fully or in part by impact fees, grants, special assessments, or revenues other than tax increments. No improvements to be made within the District will benefit property outside the District . Furthermore, there will be no improvements made outside the District that will only partially benefit the District. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 31 SECTION 16: Legal Opinion Advising Whether the Plan is Complete and Complies with Wis. Stat. § 66.1105(4)(f) Legal Opinion Found on Following Page. Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 32 To Be Inserted Tax Incremental District No. 11 Project Plan City of Franklin Prepared by Ehlers Page | 33 SECTION 17: Calculation of the Share of Projected Tax Increments Estimated to be Paid by the Owners of Property in the Overlying Taxing Jurisdictions The following projection is provided to meet the requirements of Wis. Stat. § 66.1105(4)(i)4. Revenue Year Milwaukee County MMSD City of Franklin Franklin School District MATC Total Revenue Year 2028 9,049 3,551 10,184 15,999 2,197 40,980 2028 2029 20,452 8,025 23,015 36,158 4,964 92,614 2029 2030 46,134 18,103 51,916 81,563 11,199 208,916 2030 2031 69,811 27,394 78,561 123,423 16,946 316,136 2031 2032 93,725 36,778 105,472 165,702 22,751 424,428 2032 2033 94,662 37,146 106,527 167,359 22,978 428,672 2033 2034 110,227 43,254 124,043 194,878 26,757 499,159 2034 2035 141,010 55,333 158,684 249,301 34,229 638,557 2035 2036 142,420 55,887 160,271 251,794 34,571 644,943 2036 2037 143,844 56,446 161,874 254,312 34,917 651,392 2037 2038 145,283 57,010 163,492 256,855 35,266 657,906 2038 2039 146,736 57,580 165,127 259,423 35,619 664,485 2039 2040 148,203 58,156 166,779 262,018 35,975 671,130 2040 2041 149,685 58,737 168,446 264,638 36,334 677,841 2041 2042 151,182 59,325 170,131 267,284 36,698 684,620 2042 2043 152,694 59,918 171,832 269,957 37,065 691,466 2043 2044 154,221 60,517 173,550 272,657 37,435 698,380 2044 2045 155,763 61,122 175,286 275,383 37,810 705,364 2045 2046 157,320 61,734 177,039 278,137 38,188 712,418 2046 2047 158,894 62,351 178,809 280,918 38,570 719,542 2047 Totals 2,391,313 938,369 2,691,039 4,227,759 580,466 10,828,946 Planning Department TO: City of Franklin Plan Commission FROM: Régulo Martínez-Montilva, Planning Manager Planning Department DATE: June 9, 2026 SUBJECT: Comprehensive Master Plan Update: 2nd Draft At the previous Plan Commission meeting for this Comprehensive Master Plan Update on April 9, 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. Before you tonight is the 2 nd draft of th is Comprehensive Master Plan Update with the following contents: Chapter 1: Introduction. • 2025 Comprehensive Master Plan (vintage 2009). • 2050 Comprehensive Master Plan update (v. 2025-2026). • History (revised1). Chapter 2: Issues & Opportunities. • Background: Community Character, Relevant Prior Planning Studies, Demographic Profile and TIF Districts. • Public Participation: 2009 and 2026 (new content). • Planning Areas: Issues and Preferences (reorganized). • Citywide Principles, Goals and Objectives (revised). Chapter 5: Land Use. • Principles, Goals and Objectives. • Existing Conditions: Existing Land Use Programs, Unified Development Ordinance Rewrite, Public Participation, Natural Limitations for Future Development, Special Considerations and Issues (new content). • Land Use Trends (revised). 1 Underlined text indicates additions and revisions not presented in the first draft. Draft chapters have s ide comments for new sections and major changes, highlighted texts indicate parts of the plan that need additional work. • Future Land Use Plan (new content). • Summary of Recommendations (revised). 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 E: Issues & Opportunities, Design Preference Survey and Listening Session Results. The issues and opportunities identified in 2009 were moved to this appendix, previously in Chapter 2 (reorganized). 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 (revisions to all chapters, Demographic Profile, Existing Land Use inventories, Appendices C, E and J). Major changes on this 2 nd draft This 2nd draft of the Comprehensive Master Plan updates includes input received from the Open House session held in May, future land use projections, and updates to principles, goals and objections as well as plan recommendations. Below is a list of changes organized by chapter. Chapter 1: Introduction. • History section revised to acknowledge the city’s area as the traditional homeland of indigenous people. Chapter 2: Issues & Opportunities. • Regional Map 2.1 updated. • Public Participation updated with results of the Next Priorities activity from the Open House. • Plannings Areas section reorganized in major citywide issues, issues by planning area moved to Appendix E Issues & Opportunities , Design Preference Survey and Listening Session Results. • Principles, goals and objectives updated by adding: recent land use trends, universal design concept to “high quality definition”, and objective to monitor demographic trends. Chapter 5: Land Use. • Public Participation updated with results of Like-Dislike activity from the 2026 Open House. • Potential Development and Planning Areas Map 5.4 updated. • New Sidewalk and Trail Network Map 5.5. • Future Land Use Trends updated: future population growth and build-out projection. • Future Land Use Map 5.8 updated, including highlights and projections. • Land Use Design Policies revised. • Summary of recommendations updated. Open House As part of the public participation plan, Planning staff held an Open House at the Arbor Day event on Saturday May 2, 2026, in the Franklin Library parking lot, with a turnout of 60 participants. Arbor Day Event on May 2, 2026. Planning staff presented informational boards to participants on these topics: • Demographic Profile. • Land Use Trends 1985-2024. • Future Land Use Map. Additionally, staff facilitated two interactive activities to receive feedback from participants: Next Priorities and Like-Dislike. Next Priorities activity This activity is for receiving public input on which chapters should be updated after this partial update is completed. 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. Like-Dislike activity Participants were asked to identify places they like and don’t like within the city, up to two places in each category, and 60 responses were received. Planning Department staff compared each response to the Future Land Use Map: • Map correction, designate Kayla’s playground as Recreation. • Map correction for policy direction from the Plan Commission. 60 th Street, from Residential to Agricultural, see next page for details. Two participants indicated flooding as a concern in this area, note the 1% annual flood chance floodplain (see map on next page). See Appendix J: Public Participation activities 2026: results; for a table with all responses by place (i.e. subdivisions and intersections). Planning Department booth. Map changes for policy direction Planning staff is presenting this plan draft for feedback from the Plan Commission on the plan document and asking for policy direction on the following changes to the Future Land Use Map: S. 60th Street (between Oakwood Road and South County Line Road) Approximately 350 acres between the Root River and the Root River Canal, on both sides of 60 th Street, is designated in the 2009 Future Land Use Map as Residential. Planning Staff suggests to designate this area as Agricultural, because this area is surrounded by floodplains (blue hatch), currently zoned for agriculture, and distant from existing public water and sewer infrastructure (over 3,000 feet) and there are no current plans to extend infrastructure to this area. Aerial of S. 60th Street, between Oakwood Road and South County Line Road. Not to scale. 8032 & 8180 W Oakwood Road These two parcels (approximately 59 acres) are designated in the 2025 Future Land Use Map (vintage 2009) as Business Park. Planning Staff suggests to designate th ese two parcels as Residential because adjacent parcels have been changed to other uses as shown below. All parcels designated for business park occupied 175 acres, the remaining 59 acres is a small area for a stand -alone business park when compared to existing business parks in the city: Ryan Meadows/Copart (160 ac), Franklin Business Park (560 ac) or Franklin Mixed-Use Business Park (490 ac). 2025 Future Land Use Map (vintage 2009), annotations by Planning Staff. Not to scale. 9351 S 51st Street This 19- acre parcel is part of Planned Development District No. 25 that allows for multifamily residential use per Ordinance No. 98-1491, so Planning Staff suggests to designate the Residential area of this parcel to Residential-Multifamily. Even though this parcel received use approval in 1998, it’s still vacant. 2025 Future Land Use Map (vintage 2009), annotations by Planning Staff. Not to scale. Project Schedule • The 2nd draft of this comprehensive plan update is available in the electronic packet for the June 18 Plan Commission meeting: https://www.franklinwi.gov/Departments/Elected-Officials/Boards-Comissions/Plan-Commission.htm • Plan drafts are also available on the city’s ecode360 platform at: Comp. Plan Update (2026) - Public Documents - City of Franklin, WI Meeting ● Deliverable ★ ✅ 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) ● ★ ● ● ● Project Steps Apr May Jun Jul 2026 Aug Sep Oct Nov 2027 Dec Jan Feb Mar Chapter 1: Introduction F ranklin 2050 Comprehensive Master Plan 2nd Draft (June 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 Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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, redevelopm ent, 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 requir ements 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 Planning Department staff to start an update of demographic data of the 2025 Comprehensive Master Plan. The planning ho rizon for this update is the year 2050. Updated 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 2nd Draft (June 2026) 1-2 2025 COMPREHENSIVE MASTER PLAN (VINTAGE 2009) In 2009, the City was divided into neighborhood planni ng areas to address specific concerns related to preservation of neighborhood character, local environmen tal 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 we re 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 plan recommended development types that we re 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 2nd Draft (June 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 census data as well as popu lation projections for 2050.  Relevant Prior Planning Studies updated with studies completed between 2009 and 2025.  TIF Districts Section updated.  Public Participation (in draft form).  Principles, Goals and Objectives (in draft form). Chapter 5: Land Use.  Principles, Goals and Objectives (in draft form).  Existing Land Use Programs updated.  Existing Zoning updated to account for the 2025 Unified Development Ordinance.  Public Input (in draft form).  Natural Limitations for Future Development: Deve lopment 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 (in draft form).  Summary of Recommendations (in draft form). Commented [RM1]: New section Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 1-4 Appendix C: City of Franklin, Demographic Variables and Comparisons updated with 2010 and 2020 census 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 this 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 stands at a crucial point in time in terms of making decisions about its future growth and development. The city has experienced rapid and continual gr owth in developed land between 1980 and 2010, and a slower growth between 2010 and 2024. The City of Franklin experienced a rapid population gr owth 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 Coun ty, 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, Da kota 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 import ance 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, an d “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 2nd Draft (June 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 beca me 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. Commented [RM2]: The Indian Community School acknowledges this area as the traditional homeland of indigenous people including the Mesquaki, Sauk and Fox, Dakota Oyáte, Ioway, Miami, Kickapoo and Macouten. The Bodwe’wadmi or Potawatomi lived in this area more recently. The Indian Community School also acknowledges the area’s importance to the Ho-Chungra or Ho-Chunk and Omāēqnomenēwak or Menominee. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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. Commented [RM3]: Timeline updated with events between 2009 and 2025. Chapter 1: Introduction Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 1-9 WISCONSIN’S COMPREHENSIVE PLANNING LEGISLATION The Comprehensive Master Plan provides a framework fo r 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 ______________. Chapter 2: Issues & Opportunities F ranklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) CHAPTER 2: ISSUES & OPPORTUNITIES TABLE OF CONTENTS 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 .......................................................................................... .................... 26 Citywide Principles, Goals and Objectives ................. ........................................................................................... 28 Principles ...................................................................................................................... ...................................... 29 Goals and Objectives ........................................................................................................... .............................. 34 Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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, househol d and employment forecasts that the local governmental unit uses in developing its co mprehensive 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 Raym ond 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 Internatio nal 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 Franklin 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 Roads County Road Interstate Highway State Highway US Highway Norway Raymond Caledonia Racine Muskego New Berlin Franklin West Allis West Milwaukee Milwaukee Greendale Greenfield St. Francis Cudahy Oak Creek South Milwaukee Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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;  a business parks in the southeast and southwest; and  an industrial park in the northwest. During the preparation of the 2009 Comprehensive Master Plan, the City was divided into nine planning areas (see Map 2.2), 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. (in draft form)  Planning Areas: Issues and Preferences. (reorganized)  Citywide Principles, Goals and Objectives. (in draft form) 2050 Comprehensive Master Plan Update The 2009 Comprehensive 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 listed below:  Community Character updated with 2024 Rural and Urban Areas Map.  Demographic Profile updated with 2010 and 2020 census data as well as popu lation projections for 2050.  Relevant Prior Planning Studies updated with studies completed between 2009 and 2025.  TIF Districts Section updated.  Public Participation (in draft form). Commented [RM1]: For this update, Chapter 2 has been reorganized. Commented [RM2]: New section. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-4  Principles, Goals and Objectives updated (in draft form). 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 presents current in formation, 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 “chara cter” include historic architecture, neighborhood scale, natural resources, and human-scaled public amenities or spaces. 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, th e City of Franklin struggles with issues related to preservation of its character while accommodating new development. Adding to the challenge is the fact that the 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. Commented [RM3]: Section updated with 2024 Rural and Urban Areas Map Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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 land s 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 Aven ue, and Forest Home Avenue between Rawson Avenue and the city limits to the north. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-6 Map 2.2: Rural and Urban Areas Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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 deve lopment. 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 flexib ility 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 development, Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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-re sidential 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 implem enting 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 de tailed 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 modificati ons 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 2nd Draft (June 2026) 2-9 future development; natural areas preservati on; and street and circu lation 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 27th 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. Comprehensive Outdoor Recreation Plan 2020 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 2020. The plan included recommendations for improving existing facilities, as well as for acquiring and developing new facilities. Prepar ation, 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 In clusive “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 Commented [RM4]: New subsection. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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 park. 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 this important source of funds. 2. Slowed population growth: The CORP incorpor ates State of Wisconsin requirements for recreational facilities which are based on population growth projections. Prior plans anticipated relatively rapid population gr owth. The 2026 Comprehensive Master Plan update includes updated demo graphic information; current projections from this 2026 update foresee a possible decline in populati on (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 increa se 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 2nd Draft (June 2026) 2-11 Franklin commissions periodic Impact Fee Studies for all categories of this revenue type, which funds infrastructure such as parks. Si nce the expectations for population growth have changed, the plan, and therefore the fees , may be greater than what the city 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 unde rtook 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 ea st to the Root River. The Ryan Creek corridor includes many importan t 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 regula tes 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 2nd Draft (June 2026) 2-12 Demographic Profile This Chapter’s Demographic Profile presents historic an d 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, an d 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 ou tcome 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, th e Recommended Plan assumes that the southwest part of the city will get public sanitary sewer service by 203 5. In 2026, the Ryan Creek Intercepto r 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 assu mptions, The Commission projects that Franklin could grow to 54,900 residents under the High-Growth Scenar io. 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 th at Franklin would reach 34,530 resi dents by 2020. In 2020, the city’s population reached 36,013 residents. DOA Projections prepared in 2024 sh ow 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 ye ar 2050, the SEWRPC High-Growth Scenario population projection is almost 70% higher than that of the DOA. Commented [RM5]: Updated with 2010 and 2020 census data as well as population projections for 2050. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-13 Chart 2.1: Difference Between Population Projections, City of Franklin The difference in available population projections highligh ts 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 th e 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 2nd Draft (June 2026) 2-14 comparable to the projected 9% decrease for the Milw aukee 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 comp arison, 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 5 5+ 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.## and 2.##). A top- heavy or inverted pyramid shape signals an aging popula tion 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% - 1 0 - 8- 6- 4- 2 0 2 4 6 81 0 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 2nd Draft (June 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 th e 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 2020 (1,451 males aged 18 to 64).3 In 2020, residents of the CRC accounted for approximately 4.4% of the city’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% - 1 0 - 8- 6- 4- 2 0 2 4 6 81 0 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 2nd Draft (June 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 f e r t i l i t y r a t e f o r w o m e n a g e d 2 5 t o 3 4 w e r e h i g h e r i n the City of Franklin comp ared to Milwaukee County. However, Milwaukee County’s 2020 population had a much greater proportion of women aged 15 to 49 years old (47.7%) compared to the City of Franklin (37.7%) (s ee Charts 2.2 and 2.3). Having a smaller population in this reproductive age group likely contributes to the pr ojected 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 continued 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 held at least a bachelor’s degree. In comparison, 88.7% of Coun ty 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 2nd Draft (June 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 he ld 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 shif ted 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 da ta 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 Manufacturin g 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 . C e n s u s B u r e a u ( 2 0 2 0 ) . O n T h e M a p A p p l i c a t i o n 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 2nd Draft (June 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 househ olds in 2010 and 13,760 households in 2020. Average household size continued to decline during this timeframe, reaching 2.46 persons per household in 2020. This average household size was comparable to Milwaukee Co unty (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 2.5). 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 2nd Draft (June 2026) 2-19 toward smaller household and family sizes. For this re ason, growth in the number of small households could continue to create demand for housing units in Franklin even as the population shrinks. Table 2.5: 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 th e 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 20 20. 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. Table 2.6 shows a drop in 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 2nd Draft (June 2026) 2-20 the construction of single-family homes after around 2005 and increased multifamil y construction in 2018, 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 2.6: Housing Units Constructed in Franklin, 2001 to 2024 Source: City of Franklin (2024). 2024 Housing Affordabilit y 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 2nd Draft (June 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 infrastructure 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 dist rict, 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 2025 (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. Commented [RM6]: New paragraph. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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 sh all 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 contacts 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 meeting(s): At the discretion of th e Project Committee/Plan Commission and Common Council, if needed. Commented [RM7]: Section updated. Additional updates may be added based on public participation. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 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 Pr iorities 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 ut ilized 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 info rmation about the respondents 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 comm unity 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 webpag e 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 pu blic, and those Project Committee meetings dealing with the Plan Update included a public comment period); Commented [RM8]: New activity. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-24  Open House (provided an op portunity for the public to ask question s 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 participated 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 amount s 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 table provides 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: Community Survey Summary. HOUSING PERCENT RESPONDENTS IN SUPPORT Single-Family 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 Multi-Family Form of ownership * 80 Includes substantial amount of open space 75 Adds little traffic to local streets 79 Architectural quality and design 80 COMMUNITY FACILITIES AND OPEN SPACES The city should provide neighborhood parks, playgrounds, and recreational facilities 74 Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-25 PUBLIC POLICIES AND COMMUNITY INFORMATION 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 INFRASTRUCTURE PERCENT RESPONDENTS OPPOSED Sidewalks on all residential streets 74 * These questions received exceptionally high scores in the categories of “very favorable” or “very supportive.” Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-26 PLANNING AREAS: ISSUES AND PREFERENCES During the initial public involvement phase for the 20 09 Comprehensive Master Plan, a Design Preference Survey and Listening Session was conducted with all nine planning areas. These 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  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 Commented [RM9]: Section reorganized. Citywide summary in this section and issues by planning areas moved to Appendix E. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-27  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 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  Concerns about the future of the landfill and potential expansion Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-28 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 ar eas, 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, recommendation s and suggestions of this Plan are set forth in the specific chapter to which they most pertain. This chapte r also identifies the City of Franklin’s Vision Statement and Mission Statement which are consiste nt 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 in formation contained in the City’s Vision and Mission Statements and the various chapters of this City of Fran klin Comprehensive Master Plan, are also identified in this Chapter. Vision Statement and Mission Statement The City of Franklin’s Vision Stat ement and Mission Statement (created in 2004 with the assistance of MSA P r o f e s s i o n a l S e r v i c e s , I n c . ) , a r e a n i m p o r t a n t p a r t o f t h i s P l a n . T h e y w i l l a l s o b e u s e d t o h e l p g u i d e t h e 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 corridors, 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 pe ople, and a small town atmosphere combine with low crime, a clean environment, and quality educational oppo rtunities to make Franklin the primary destination to live and learn, work and play, and to do business. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-29 Principles The following principles describe the overall guiding elem ents 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 residents 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-lo t residential development, small-scale commercial development, and preservation of natu ral resource features. Residents appe ar to desire additional housing. The City, however, has set a goal of lowering 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 percen t, 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 ci ty’s population is expected to decrease from 36,116 persons in 2020 to 32,299 persons by 2050. 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; 12 The Common Council, at their June 29, 2005 special meet ing, 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. Commented [RM10]: Subsection updated: 2024 residential vs. non-residential tax base. New trends and challenges to achieve a balanced development. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-30  local and regional market factors which often enco urage 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 developabl e 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 pr inciple of High Quality Development, regardless of use. The city’s priority will be to allow various types of development th at also move the city toward a balanced and sustainable tax burden. The attain ment 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 ph rases 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: Si te 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 addi tion, “High Quality” has become a commonly used phrase during conversations about the City’s development review efforts. It is also part of the 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. Commented [RM11]: Trends and challenges added. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-31 During preparation of the dr aft of the 2009 Comprehensive 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 Comprehensiv e Master Plan and to the Ci ty’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, ae sthetic, 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; 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. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-32 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. Fo r instance, repetition of a r c h i t e c t u r e o r u s e , w h e n n o t i n c o n f l i c t w i t h a n y o f t he 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/suburb an 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 re sidential, business, and industrial development. Therefore, enhancing and preserving the essential co mponents of Franklin’s ur ban, 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 know ledge-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 natu ral resource features an d 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  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. Commented [RM12]: Universal design added to the definition of “high quality”. Assistant Planner Melton. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-33 Housing Principles  Provide a wide range of housing opportunities to su pport 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 vari ous 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 transpor tation 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 2nd Draft (June 2026) 2-34 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 ar e 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. Commented [RM13]: Objective added. Chapter 2: Issues & Opportunities Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 2-35  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 ne twork 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. 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 2nd Draft (June 2026) 2-36 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 co mmunity 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 an d 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 ce nter” 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 deve lopment 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 2nd Draft (June 2026) 2-37 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 ho me 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 2nd Draft (June 2026) 2-38 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, utilit ies 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 Serv ice 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 2nd Draft (June 2026) 2-39  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 ma ps, and other planning related matters concerning those lands located within the City’s extraterritorial jurisdiction. Chapter 5: Land Use F ranklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) CHAPTER 5: LAND USE TABLE OF CONTENTS 2050 Comprehensive Master Plan Update ........................................................................................ ................... 2 Guiding Principles, Goals and Objectives 3 Principles .............................................................................................................................................................. 3 Goals and Objectives ........................................................................................................... ................................ 4 Existing Conditions 6 Existing Land Use Programs ................................................................................................................................ 6 Unified Development Ordinance Rewrite .......................................................................................... ................. 9 Natural Limitations for Future Developme nt ................................................................................................... 20 Special Considerations and Issues ............................................................................................... .................... 23 Land use trends 41 Existing Land Use Inventory (2024) .................................................................................................................. 41 Land Use Trends (1985-2024) ..................................................................................................... .................... 45 Price of Land ................................................................................................................... ................................... 52 Existing Population Trends ....................................................................................................... ......................... 53 Future Land Use Trends ........................................................................................................... ......................... 54 Future Land Use Plan 59 Future Land Use Map ........................................................................................................................................ 59 20-Year Projections in 5-Year Increments ....................................................................................... ................. 68 Land Use Design Policies ......................................................................................................... ......................... 70 Summary of Recommendations 81 Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-1 CHAPTER 5: LAND USE INTRODUCTION The “Land Use Resource Guide”, prepared in June 2005 by the Center for Land Use Education, University of Wisconsin-Stevens Point/Extension (hereinafter referred to as the “Land Use Guide”), states that having a comprehensive plan with an effective land use element “makes subsequent zoning and other land use decisions more transparent, by helping to illustrate the reasons why particular decisions were made.” The American Planning Association, in “Planning and Urban Design Standards”, states that a land use element “shows the general distribution, location, and characteristics of current and future land uses and urban form.” Similarly, the purpose of land use planning in the City of Franklin, and in this Comprehensive Master Plan, is to prepare for and guide how development will occur, and to identify what types of activities and densities of development are to be allowed. This chapter will specifically serve as one of the City’s primary tools for regulating future growth and development. Wisconsin Comprehensive Planning Legislation recognizes how important this subject is as it has identified land use 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. This chapter develops principals, goals, objectives, policies, and guidelines to meet the requirements of Wisconsin State Statute 66.1001, and furthermore, investigates existing and future land use issues throughout the City. Section 66.1001(2)(h) of the Wisconsin State Statutes provides that the Land-use Element of a comprehensive master plan is as follows: “A compilation of objectives, policies, goals, maps and programs to guide the future development and redevelopment of public and private prop erty. The element shall contain a listing of the amount, type, intensity and net de nsity of existing uses of land in the local governmental unit, such as agricultural, residential, commercial, industrial and other public and private uses. The element shall analyze trends in the supply, demand and price of land, opportunities for redevelopment and existing and potential land-use conflicts. The element shall contain projections, based on the backgrou nd information specified in par. (a), for 20 years, in 5-year increments, of future residentia l, agricultural, commercial and industrial land uses including the assumptions of net densities or other spatial assumptions upon which the projections are based. The element shall also include a series of maps that shows current land uses and future land uses that indicate productive agricultural soils, natural limitations for building site development, floodplains, wetlands and other environmentally sensitive lands, the boundaries of areas to which services of public utilities and community facilities, as those terms are used in par. (d), will be provided in the future, consistent with the timetable described in par. (d), and the general location of future land uses by net density or other classifications. ” Chapter 5: Land Use Fr anklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-2 The land use element chapter is organized in the following sections:  Guiding Principles, Goals and Objectives.  Existing Conditions.  Land Use Trends.  Future Land Use Plan.  Summary of Recommendations. 2050 Comprehensive Master Plan Update This chapter was first prepared for the 2009 Comprehens ive Master Plan with a planning horizon for the year 2025, this plan update started in 2025 is to extend the planning horizon to the year 2050. Major updates to this chapter listed below:  Updates to Principles, Goals and Objectives. (draft form)  Existing Land Use Programs updated.  Existing Zoning updated to account for the 2025 Unified Development Ordinance.  Public Input. (draft form)  Natural Limitations for Future Development: Deve lopment Limitations and Environmentally Sensitiv e 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. (draft form)  Summary of Recommendations updated. (draft form) The _____________ sections have not been substantially updated since 2009. Commented [RM1]: Chapter reorganized. Commented [RM2]: New section. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-3 GUIDING PRINCIPLES, GOALS AND OBJECTIVES “A compilation of objectives, policies, goals, … to guide the future development and redevelopment of public and private property.” Excerpt from Wisconsin State Statute 66.1001(2)(h). The following principles, goals, objectives and policies will guide the City of Franklin’s official mapping, subdivision regulation, and zoning activities. Where possib le and appropriate, existing local, regional, or state land use related guidelines have been used, as noted herein. Any additional details set forth in this chapter, such as recommendations for further study or educational efforts pertaining to Sustainability, Cost of Development Study, Growth Management, Land Development Guide, and Purchase of Development Rights/Transfer of Development Rights, are intended to ensure that the full scope of the land use planning related needs of the City are eventually addressed. They 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 the Common Council determine that changes to the Comprehensive Master Plan as a result of the studies or educational efforts are warranted, any such changes would then be made to the Comprehensive Ma ster Plan through the form al amendment process to ensure an appropriate level of consistency between the Plan and such study or educational effort. Principles The five overall guiding principles of the City’s land use related efforts are as follows: 1. To enhance the quality of life for present and future generations by providing economic growth through the highest quality of residential, recreational, an d business development in Southeastern Wisconsin. [from City of Franklin Vision Statement] 2. T h e f u t u r e o f F r a n k l i n i s f o u n d e d o n q u a l i t y development that includes smaller and mixed-use commercial centers and corridors, that provides for new 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 hous ing opportunities to support the needs of working professionals, seniors, and families. [from the City of Franklin Mission Statement] 3. To permit sustainable growth while protecting the natural resource features and high-quality suburban character of the City. [from Chapter 2, Balanced Development Principle] 4. To allow for various types of develo pment, that also move the city toward a balanced and sustainable tax burden. [from Chapter 2, High Quality Development Principle] 5. To utilize the Land Use Element as the principle means to integrate and ensure consistency between all of the other elements of this Comprehensive Mast er Plan. [from “Land use Resource Guide” by the Center for Land Use Education, University of Wisconsin-Stevens Point/Extension] Further, it is the policy of the City of Franklin that these five guiding principles provide the framework or context in which the City can establish and direct its land use related efforts in pursuit of the related goals and objectives. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-4 It is also a policy of this Plan that implementation is intended to be accomplished over time. As such, while the following goals, objectives, and recommendations may sometimes appear to be implemented in a seemingly haphazard fashion, in actuality, th e attainment of the goals, objectives, and recommendations will be accomplished as part of a comprehensive effort of the City, its citizens, its businesses, and its numerous partners and peers, cognizant of such realities as fiscal responsibilities, legal constraints, and technological capabilities. Goals and Objectives The following goals and objectives are organized by gene ral topic or theme, with the associated objectives indented and listed underneath the related goal. More specific policies and recommendations are set forth later in this chapter. 1. Encourage land uses, densities and regulations th at promote efficient development patterns and relatively low municipal and utility costs. [Wis. Stats. 16.965(4)(b)5, Smart Growth provisions] 2. Foster community identity in the built environment at the street, neighborhood, and community scale. [from Smart Growth provisions] o Revitalize main streets, special districts, and areas of historic/cultural importance, such as the St. Martin’s area the S. 27th Street Corridor. o Create and enforce design standards that are appropriate for different types and scales of development. o Prepare and update area plans to maintain th e character of neighborhoods and to guide new development where it is appropriate. 3. Encourage high quality commercial development in appropriate locations. [from public input] o Accommodate (where appropriate) high quality neighborhood-scale commercial development compatible with adjacent uses, and consistent with the capacity of the City ’s infrastructure. [from public input] o Require site plan approval for all new development and redevelopment. [from public, staff, and committee input] 4. Encourage compatible uses, such as high-quality non-residential development next to residential development, and/or by providin g appropriate buffers between them . [from the Land Use Guide, as revised by the Project Committee] o Direct retail centers and othe r high-intensity and community and regional scale commercial development, other than those specifically identified in the Land Use Plan, to major traffic arterials. [from public input] o Encourage the use of natural resources as visual and physical amenities for development and as buffers between different developments. o Establish a program that identifies unique natural areas to be preserved through natural resource protection and land banking. 5. Accommodate (where appropriate) mixed-use development within identified districts and commercial areas. [from public, staff, and committee input] Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-5 o Provide for mixed-use buildings to include housing within identified districts and commercial corridors. [from public input] o Identify location(s) that will support a “village ce nter” development with quality retail, residential, institutional, and/or recreational uses. [from public, staff, and committee input] o Include public open space within, and adjacent to, mixed-use developments. [from public input] o Establish architectural, landscape, and site development standards fo r mixed-use development that improves the value of the properties. [from public, staff, and committee input] 6. Encourage redevelopment of public and private property in accord with all pertinent principles, goals, objectives, and policies set forth in this Plan. [Smart Growth provisions] The Land Use Element’s principles, goals and objectives noted above, as well as the policies and recommendations noted later in this chapter, have been utilized in the preparation of the Future Land Use Map also presented later in this chapter, specifically through the character and form associated with each land use category shown on the map. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-6 EXISTING CONDITIONS Existing Land Use Programs “A compilation of … programs to guide the fu ture development and redevelopment of public and private property.” Excerpt from Wisconsin State Statute 66.1001(2)(h). The following is a brief discussion of the major land use related programs within the City of Franklin. Additional information about these programs is available on the City of Franklin website or by contacting the Clerk’s Office or the Department of City Development. It is herein recommended that these programs be continued in such manner and fashion as may be determined from time to time by the Common Council. Plan Commission The Plan Commission consists of seven members; the Ma yor, two Alderpersons and four citizens (which are appointed by the Mayor and confirmed by the Common Council). The Plan Commission has such powers as is necessary to enable it to perform its functions and duties and promote municipal planning. Such powers include but are not limited to:  employ experts and staff;  make reports and recommendations;  recommend public improvement programs;  request available information; and  enter upon lands in the performance of its functions. More specifically, the Plan Commission’s functions and duties include:  prepare and recommend a Comprehensive Master Plan;  prepare and recommend an Official Map;  prepare and recommend a Zoning District Map;  prepare and recommend land division regulations;  prepare and recommend changes to the Comprehensive Master Plan;  consider, report and recommend on all matters referred to them;  grant variances to the land division regulations; and  hold public hearings and informational meetings. Board of Zoning and Building Appeals The Board of Zoning and Building A p p e a l s ( B Z B A ) c o n s i s t s o f f i v e members appointed by the Mayor and confirmed by the Common Council. Two alternate memb ers are appointed by the Mayor and act only when a regular member is absent or refuses to vote because of a potential conflict of interest. The powers and duties of the BZBA include:  hear and decide appeals;  hear and grant variances;  hear and decide interpretation of zoning regulations;  hear and grant substitution of more restrictive nonconforming uses; Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-7  hear and grant approvals for unclassified and unspecified uses; and  may reverse, affirm wholly or partly, modify, issue, or direct the issue of permits. Parks Commission (formerly Environmental Commission) At the time of the adoption of this Comprehensive Master Plan in 2009, the En vironmental Commission was tasked with oversight of environmental policy in the Ci ty of Franklin. The powers and duties of the former Environmental Commission were incorporated into thos e of the Parks Commission in 2025. Their work was combined to a single commission responsible for oversight of City Parks and natural resources, as well as the policy responsibilities of both bodies. The Parks Commission consists of seven members: one Alderperson and six citizens, all appointed by the Mayor and confirmed by the Common Council. This Commission also includes ex-officio representatives from the community group Kayla’s Krew for Kayla’s Playground, and from the Franklin Public School District’s Franklin Community Education and Recreation Department. The Commission is empowered by Wisconsin Statutes §2 7.08, 27.09 and 27.10, and Article 10 of the City of Franklin Municipal Code. Other powers and duties may be granted by statute or by the Common Council. The powers and duties of the Parks Commission include:  Appointing agents and employees subject to approval of the Mayor and Common Council as may be necessary to carry out the functions of the Parks Commission.  Charge and supervision of all City parks and recreation programs, subject to Mayor and Common Council supervision. In particular, the Commission contribu tes to land use planning through oversight of the implementation of the Comprehensiv e Outdoor Recreation Plan or CORP, which is an element of this Comprehensive Master Plan. It outlines plans for acquisition and development of public parks, open space, and outdoor recreation in the City of Franklin.  Reports and recommendations, including budgetary items, to the Mayor and Common Council.  Reviews and recommendations on policies and procedures regarding City efforts to perform recycling and composting in the City as may be required fr om time to time due to changes in State laws, regulations, or funding.  Makes recommendations regarding environmental issues of concern to the City.  Monitor federal and state laws and policies regarding environmental issues as they relate to the City.  Promoting interest in obtaining grants to assist the City in environmental matters.  Promoting citizen participation in events concerning environmental issues, including the popular Arbor Day Celebration  In addition to these specified powers and duti es, the Commission reviews and recommends upon matters directed to it by the Common Council. Commented [RM3]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-8 Comprehensive Master Plan As noted in Chapter 1 of this Plan, the City of Franklin prepared its first comprehensive plan in 1965. While never adopted by the City, much of the information contained within that plan was often consulted. The City’s second comprehensive plan, prepared in 1992, was adopted by the City. That plan addressed the following topics:  Population and Employment Analyses, Projections, and Forecasts;  Natural Resource Base Features;  Existing Land Use and Community Character;  Existing Zoning and Real Property;  Development Objectives, Principles, Standards, and Urban Design Criteria;  Transportation System Plan;  City Land Use and Detailed Neighborhood Plans;  Park and Open Space Plan;  Public Sanitary Sewer and Public Water Supply Plans, and  Public Building Facilities Plan. It is particularly important to note that the 1998 Unif ied Development Ordinance (UDO) incorporated many of the standards and recommendations contained within the 1992 Comprehensive Master Plan. Similarly, the 2025 UDO addressed several recommendations of the 2009 Comprehensive Master Plan as discussed further in this Chapter. While the 1992 Comprehensive Master Plan has been su perseded by the Plan adopted in 2009, portions and elements of the 1992 plan have been incorporated by reference into the current Plan, including:  Certain community character background and explanatory information, as identified in Chapter 2 of this Plan;  Certain goals and objectives, as identified in various chapters of this Plan;  Certain natural resources background and inventory information, as identified in Chapter 3 of this Plan;  Certain detailed street and lot layouts, as identified in Chapter 5 of this Plan;  Certain design standards, as identified in Chapter 5 of this Plan;  Detailed discussion of the City’s zoning districts, as identified in Chapters 5 and 6 of this Plan; and  Certain housing vacancy rate information, as identified in Chapter 6 of this Plan. Official Map An official map may show existing and planned streets, the city adopted its original official map in 1970 and was last updated in 1997. See current Official Map in Chapter 7, Map 7.5. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-9 Other Land Use Related Plans The following land use related plans (see Chapter 2 of this Plan for a summary of each plan), have been incorporated into Chapter 5 as discussed later in this chapter:  “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, Pr eliminary Engineering, Feasibility Analysis, and Financial Analysis for the City of Franklin” (October 2001);  “Comprehensive Outdoor Recreation Plan: 2030 for the City of Franklin, Milwaukee County, Wisconsin” (2002, updated in 2011 and 2015)  “Crossroads Trade Area: Regulating Plan” (November 2004);  “South 27th Street Corridor Plan” (2004); and  “Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy” (November 2008). Unified Development Ordinance Rewrite The purpose of the Unified Development Ordinance (UDO) is to “promote the health, safety, morals, prosperity, aesthetics, and general welfare and to regulate land uses and control the division of land within the limits of the City of Franklin, Wisconsin”. In simple terms, the Unified Development Ordinance contai ns all of the City’s zoning and land division related regulations within one document. The city adopted the current Unified Development Ordinance (UDO) in 2025, after a complete rewrite of the 1998 UDO. In addition to general zoning and land division provisions, the Unified Development Ordinance specifically addresses such issues as:  Natural Resource Protections;  Design Standards;  Required Plans, Plats, & Maps; and It can be noted that while the Plan Commission and th e Department of City Development are responsible for administration of most of the Unified Development Ordinance’s requirements, the Board of Zoning and Building Appeals, the Engineering Department, and the Inspection Services Department are also responsible for administration of specific portions of the UDO. The city adopted a new Unified Develo pment Ordinance (UDO) in 2025 as a full rewrite of the 1998 UDO. The rewrite process began in 2021, when the City hired a consultant team (Houseal Lavigne and Birchline Planning), to support the process and began gathering input from resi dents, stakeholders, and local officials on priorities for the project. By adopting the 2025 UDO, the city accomplished seve ral recommendations from the 2009 Comprehensive Master Plan: Commented [RM4]: New subsection. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-10  “It is recommended that the City undertake an upda te of the Unified Development Ordinance as soon as practical”.  “Additional mixed-use zoning and design provisions should be included within the Unified Development Ordinance”. The UDO now allows vertical mixed use (multifamily over commercial) in most business districts and set design standards for commercial and mixed use districts.  “Consider update/revision to, or replacement of, the use of the Standard Industrial Classification system in the analysis of permitted uses within the City’s various zoning districts”. Use tables are now organized in broad land use categories (i.e. General Retail).  “Continued update/revision of the City’s Sign Ordinance”. Signs regulations have been updated and are now part of the UDO.  “Consider update/revision of the City’s regulation s pertaining to lot coverage”. Lot coverage was replaced with impervious surface ratio.  “Consider creation of an ordinance, or update/revision of the City’s regulations, to address wind energy conversion systems and solar panels”. The UDO now has standards specific to solar and wind farms.  “Consider update/revision of the Home Based Occu pations provisions of the Unified Development Ordinance”. These provisions have been updated and renamed as Home Based Business.  “Consider update/revision of the Ci ty’s regulations pertaining to accessory structures”. Accessory structures as well as fences regulations have been updated.  “Consider update/revision of the Essential Services provisions of the Unified Development Ordinance”.  “It is recommended that the City adopt a conserva tion subdivision ordinance patterned upon the UW Extension Model Ordinance, with revisions to the concepts and standards as determined by the Common Council”. The UDO now provides cluster development standards and the option of density bonuses”  “It is recommended that the Open Space Subdivision options within the residential zoning districts of the Unified Development Ordinance, be removed or revised if necessary, to address any inconsistencies with the proposed Conservation Subdivision Ordi nance”. The open space subdivision options were replaced with cluster development standards.  “Update/revision of the City’s architectural standards, criteria, and guidelines”.  “Update/revision of the City’s lighting standards”.  “Update/revision of the City’s off-street parking standards”.  “Revision of the City’s building height limits in select non-residential districts”.  “Preparation of design manual which incorporate numerous pictures, figures, and other graphics to help articulate the City’s desired/required design standards, criteria, and guidelines”.  “Rezone all parks to P-1”. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-11  “Eliminate the C-1 zoning district”. Additionally, the city’s floodplain zoning ordinance was updated in 2024 addressing a recommendation from the 2009 Comprehensive Master Plan. Existing Zoning Zoning is defined by “The Practice of Local Government Planning, Second Edition” (prepared by the International City/County Management Association), as “the division of a community into districts (zones) which impose different land use controls on each district, specifying the allowed uses of land and buildings, the intensity or density of such uses, and the bulk of buildings on the land.” More simply, the “A Citizens Guide to Land Use in Wisconsin, Third Edition” (by 1000 Friends of Wisconsi n and the Land Use Institute), defines zoning as “the division of land into districts for the purpose of imposi ng limitations on the land use in those districts in the interest of public health, safety, and welfare.” A zoning map in turn, is simply a map that shows the boundaries and labels of the districts or zones into which the comm unity has been divided. Legally, it is adopted as a supplement to the zoning ordinance. As shown on Map 5.3, the City of Franklin consists of 19 zoning districts in 2025 , including four residential districts, four commercial and mixed-use districts, two agricultural districts, as well as business park, industrial, park, institutional and landfill districts, a planned develo pment legacy district and a floodplain overlay district. The intent and standards of each district are set forth in the Unified Development Ordinance, which was adopted on May 6, 2025, as a full rewrite of the 1998 UDO. Commented [RM5]: Section updated. Existing Zoning Map 5.1 l'"••i. c·t b d , .... r I y oun ary D Parcels Zoning District - A - Agricultural � A-P - Prime Agricultural R-C - Countryside Residence R-SE - Suburban/Estate Residence - R-SR - Suburban Residence - R-MF - Multiple-Family Residence - R-V - Village Residence B-SM - St. Martins Road Historic Business B-N - Neighborhood Business - B-G - General Business - B-R - Regional Business - B-MU - South 27th Street Mixed Use - B-P - Business Park - I - Institutional - LI - Limited Industrial - L- Landfill - P - Parks and Open Space - PDL - Planned Development Legacy IZZJ FP - Floodplain Overlay District Source: Zoning: Ordinance 2025-2675. May 6, 2025 Base map: Milwaukee County Land Info, Esri, TomTom, Garmin, SafeGraph, GeoTechnologies, Inc, METI/NASA, USGS,EPA,NPS,USDA,USFWS I 0 1:40,000 I I I ¼ ½ 1mile Franklin WISC O NSIN December 2025 Planning Department 9229 W Loomis Rd Franklin Wl-53132 City of Franklin Comprehensive Plan Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-13 The following are the current (2025) zoning districts found in the City of Franklin Zoning Ordinance: Residential Districts R-C - Countryside Residence District (minimum lot size = 40,000 sq. ft.)  allows low density single-family housing  intended to maintain a rural residential character in the southwest portion of the city  minimum lot size of 5 acres where not served by public sanitary sewer and water service R-SE - Suburban/Estate Residence District (minimum lot size = 18,000 sq. ft.)  allows single-family housing at moderately low densities housing  requires public sanitary sewer and water service R-SR - Suburban Residence District (minimum lot size = 10,000 sq. ft.)  allows single-family housing with a suburban character  requires public sanitary sewer and water service R-MF - Multiple-Family Residence District (minimum lot size = 4,500 sq. ft. per dwelling unit)  allows multi-family housing, most dense residential district  requires public sanitary sewer and water service R-V - Village Residence District (minimum lot size = 7,200 sq. ft.)  exclusive to Village of St. Martin’s planning district  most dense single-family residential district  requires public sanitary sewer and water service Commercial and Mixed-Use Districts These districts allow for vertical mixed-use: commercial uses on the ground floor and apartments on upper floors. B-N - Neighborhood Business District  provides for the convenience of those in nearby residential districts  limits building heights to not to exceed 40 feet to ensure compatibility with surrounding land uses B-G - General Business District  allows a variety of commercial service and retail uses  limits building heights to not to exceed 40 feet to ensure compatibility with surrounding land uses B-R - Regional Business District  allows moderately large-scale development along major roadways  intended to serve the needs of Franklin residents as well as a regional consumer market beyond city’s boundaries Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-14 B-MU - South 27th Street Mixed-Use District  provides for development of certain mixed uses including retail, commercial, office, and residential  located along South 27th Street B-SM - Village Business District  exclusive to the Village of St. Martins planning district  maintains and enhances historic village design characteristics  prevents land and structures from becoming a non-conforming use under other Franklin suburban zoning classifications  requires public sanitary sewer and water service Industrial and Agricultural Districts B-P - Business Park District  allows a mix of light industrial, research, and office uses  intended for uses conducted primarily indoors  allows for buildings up to 90 feet tall LI - Limited Industrial District  allows for manufacturing, industrial, warehousing, and similar uses A - Agricultural District  intended for small farming operations engaged in crop production, livestock and other agricultural activities  retains rural character and allows for single-family residential A-P - Agricultural District  intended to maintain, preserve, and enhance agricultural lands historically uses for crop production and raising of livestock  prevents premature conversion of agricultural land for other uses  limited to ‘prime agricultural lands’  retains rural, countryside character of designated areas Miscellaneous Districts P - Park District  intended to provide for the public and private recreati onal facilities while preserving the city’s natural resources I - Institutional District  intended for permanent public or quasi-public uses, municipal facilities, utilities and noncommercial places of assembly Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-15 L - Landfill District  intended to regulate land use on existing and former landfill sites  not intended to accommodate new landfill sites PDL - Planned Development Legacy District  includes properties that have been previously zon ed as a “planned development district” and with a unique set of regulations for each district  the city currently (2025) has 44 planned development legacy districts  not intended to accommodate new planned development legacy districts, however, new planned developments may be adopted as overlay zoning over a base zoning district FP – Floodplain Overlay District  used to protect people and property from flood damage by prohibiting the erection of structures that will impede flow of water during periodic flooding  regulated by the Floodplain Zoning Ordinance Zoning Map updates As noted in the preceding section of this chapter, while this Plan is not a Zoning Map, it does contain many zoning related recommendations. And purs uant to State Statute 66.1001, th e City’s zoning ordinances and amendments must be consistent with this Plan. The zoning map was updated concurrently with the Unified Development Ordinance Text in 2025. It is recommended that future changes to the City’s Zoning Map will occur over time as property owners and the City itself determine to be appropriat e, timely and consistent with this comprehensive plan. Zoning and Land Division Changes As stated numerous times throughout this Plan, the City of Franklin Comprehensive Master Plan is not a Zoning Map nor is it an Official Map. What this plan is, is a comprehensive plan as defined by Wisconsin State Statute. However, as required by State Statute 66.1001, this Plan does include information and does address numerous topics that can affect zoning and land division decisions, and can in turn, be affected by zoning and land division decisions. This relationship is acknowledged by the State Statute, as evidenced by § 66.1001(3) which states in part that “Beginning on January 1, 2010, if a local governmental unit engages in any of the following actions, those actions shall be consistent with that local gove rnmental unit’s comprehensive plan … Local subdivision regulation … City or village zoning ordinances…” In this regard, it can be noted that numerous reco mmendations contained within the City of Franklin Comprehensive Master Plan may affect the current zoning or land division practices of the City. These range from general to specific recommendations. A list of these zoning and/or land division related recommendations is set forth below. Further information about each recommendation is contained within the noted chapter of this Plan. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-16  The Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy, including the Southwest Overlay District, should be implemented (see Chapter 3);  Implementation of greater agricultural resources protection should be considered if local interest exists and opportunities occur (see Chapter 3).  Creation of a mixed-use zoning district that allows park and open space sites with other compatible uses, as a permitted use, should be considered (see Chapter 3).  A mixed use overlay zoning district to promote this type of development in appropriate areas throughout the City should be created (see Chapter 5).  The urban design standards, criteria, and guidelines set forth in the Unified Development Ordinance, the 1992 Comprehensive Master Plan, and the 2007 City of Franklin Design Standards and Construction Specifications, amended in 2017, (as th ese standards, criteria, and guidelines may be revised and amended over time) are hereby incorporated into the City of Franklin 2025 Comprehensive Master Plan by reference (see Chapter 5).  Appropriate locations for particularly high quality single-family residential and mixed-use developments (with residential components) should be identified during consideration of a Conservation Subdivision Ordinance (see Chapter 6).  Appropriate locations for infill development, and ap propriate standards for such development, should be identified (see Chapter 6).  Universal Design standards should be considered for all zoning districts (see Chapter 6).  An Official Map should be prepared and adopted by the City of Franklin, which at a minimum should identify right-of-way widths for existing public streets (see Chapter 7). It is also understood that implementation of the zoni ng and land division related recommendations contained within the Future Land Use Plan and Future Land Use Map will occur over time as market conditions dictate, as property owners request, and as the City considers approp r i a t e . I t i s f u r t h e r u n d e r s t o o d t h a t t h e C i t y i t s e l f possesses the ability to sponsor rezonings when in the best interest of the public’s health, welfare, and/or safety. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-17 Public Participation Ultimately, the success of a communit y’s economic or development strategies is related to how prospective residents or businesses view the community; it is also related to how the community preserves those characteristics that make it an attractive commu nity. Because the City of Franklin understands how important this is, the following public participation activities were conducted for the preparation of the Comprehensive Master Plan between 2005 and 2009, and for the plan update in 2026. . Like-Dislike activity (2026) During the Open House at the Arbor Day event on May 2, 2026, participants were asked to identify places they like and don’t like within the city, up to two places in each category, 60 responses were received. Planning Department staff compared each response to the Future Land Use Map an d made the following corrections to the map:  Designate Kayla’s playground as Recreation.  Designate the area between the Root River and the Root River Canal, on both sides of 60th Street, from Residential to Agricultural, because this area is surrounded by floodplains, currently zoned for agriculture, and distant from existing public water and sewer infrastructure (over 3,000 feet). See Appendix J: Public Participatio n activities 2026: results; for a tabl e with all responses by place (i.e. subdivisions and intersections). Communitywide Survey: Land Use Opinions (2005) A written, communitywide survey was conducted in 2005 to gauge public opinion on a number of issues, including preferences related to land use. The survey results are summarized in Chapter 2 and appendices D and E, the following is a summary related to specific land use opinions. Housing When asked what type of new housing types they woul d favor, Franklin residents displayed a very strong preference for single family homes, with 88 percent describing that housing type as favorable or very favorable. Senior housing (60 percent) and Town homes (51 percent) were the only ot her housing types to be favored by more than half of Franklin residents. Condominiums (in apartment style buildings), a ‘variety of residential development types’, and duplexes we re favored by 37 percent and 45 perc ent of respondents respectively. Apartments were favored by only 11 percent of responde nts (2 percent highly favorable, 9 percent favorable), with 64 percent describing apartment development as unfavorable (37 percent) or highly unfavorable (27 percent). Franklin residents were also asked to rate the importance of various characteristics re lated to single family residential development. ‘Compatibility with surrounding neighborhoods’ was considered very important by 58 percent of respondents, and important by an additional 30 percent. Several characteristics related to land use were rated as having a similar level of importance. ‘Size and scale of development’, ‘variety of appearance within subdivisions’, and ‘lot sizes and setbacks’ were each rated very important or impo rtant by approximately 80 percent of respondents. The lowest ranking characteristic was ‘inclusion of a variety of housing types’ with only Commented [RM6]: New activity. Commented [RM7]: For POLICY DIRECTION Correction not applied to the map yet. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-18 63 percent describing it as important or highly important. This relatively low ranking reflects the preference for single family housing among Franklin residents. Open Space Survey results indicate that open space is important to Franklin residents. Seventy-five percent of respondents felt the inclusion of open space was an important or very important characteristic in the development of multi- family housing. Seventy-four percent of respondents su pported the position that the City of Franklin should ‘provide parks, playgrounds, and recreational facilities to serve neighborhoods’ (30 percent very supportive, 44 percent supportive), while 60 percent supported the position that the City should ‘identify and create an outdoor regional trail system throughout the City’ (28 percent very supportive, 32 percent supportive). These were the only facilities supported by more than half of all respondents. When asked whether the City should spend tax dollars on various items within commercial areas, 65 percent of respondents supported spending on land for small parks and plazas, and 53 percent favored spending on trails and paths linking commercial and residential areas. Commercial 52 percent of respondents were supportive of additional retail service within one mile of their home. Another component of the survey asked Franklin residents what type of businesses they would like to see developed in the City. Highest Ranked Preferred Businesses:  Dining  Specialty shops  Large retail  Upscaled dining  Small privately-owned businesses Least Desirable Businesses:  Big box retailers Design Preference Survey: Land Use Opinions (2005-2009) During Neighborhood Listening Sessions, over 475 Franklin residents participated in a visual preference survey in which a number of images were shown, representing a wide variety of residential, commercial, street, and open space designs and configurations. Respondents were asked to rate each image on a scale from -5 (highly unfavorable) to 5 (highly favorable) for the City of Franklin. The participants rated 78 images in seven categories and discussed why they scored the+ images as they did. The design preference results are a general indicator of citizens’ preference of various architectural styles, site layouts, streets types, land use, and public spaces. Images from the Design Preference Survey results can be found in Appendix E. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-19 Commercial Retail When results were tabulated for the images related to commercial retail development, several favored characteristics came to light. These included traditio nal architecture, integrated landscaping, low building heights (2 stories or less), and parking that is adjacent to buildings with features intended to minimize visual impact. Once again, big box retailers fared poorly, in part due to the scale of the buildings and their typical use of blank, unarticulated facades. Commercial Office Images related to commercial office development prompted similar results. Respondents favored smaller, non- repetitive buildings with architectural detail and scre ened parking. Large building s with unkempt landscaping fared poorly. Institutional Respondents favored institutional buildings designed in a traditional style with pitched roofs, and natural materials such as stone or brick. Images featuring mature trees and well-kept landscaping also scored highly. Housing Among images of single-family residential development, respondents showed a strong preference for large lots. Small lots, with shallow setbacks scored poorly. Building style and the presence of architectural features such as porches tended to have no impact on scores. Re spondents favored multi-family housing that featured significant, well-kept landscaping. Smaller buildings, and those that most closely resembled single family housing, also scored well. Images showing large, open parking lots tended to score poorly. Open Space Respondents were also asked for their opinions on images related to open space, such as parks or plazas. Park images showing mature trees, paths, and a high degree of landscaping scored highly. Images of natural areas, and parks with unkempt landscaping fared poorly. Among plazas, respondents favored integrated seating areas, significant landscaping, garden walls, and decorative fencing. Plazas with less landscaping and younger trees tended to score poorly. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-20 Natural Limitations for Future Development “The element shall also include a series of maps that … indicate productive agricultural soils, natural limitations for building site deve lopment, floodplains, wetlands and other environmentally sensitive lands …” Excerpt from Wisconsin State Statute 66.1001(2)(h) Existing development pattern s and natural conditions are often the two most limiting factors for future development. Compatibility between uses is critical for the sustained value of existing property values, specifically housing. Natural conditions, such as soil conditions, protected environmental features, or areas of significant wildlife habitat, may limit development due to City regulations or state permitting requirements. The “Development Limitations” and “Environmentally Sensit ive Areas” maps are two integral components to the City’s Land Use element. These maps are for informational purpose and are not regulatory maps; however, they should be utilized in coordination with the Future Land Use Map when reviewing and approving changes in zoning, planned unit developments, conditional uses, land divisions, land stewardship plans, road alignments and circulation improvements, and related development matters. Map 5.2, “Development Limitations,” identifies natura l features that may limit potential building site development. The natural features identified include:  Special Flood Hazard Area (1% annual chance).  Wetlands  Hydric Soils Map 5.3, “Environmentally Sensitive Areas,” identifies additional environmentally sensitive areas that should be considered for protection, buffering, or incorporation as an open space amenity as future development occurs. These environmentally sensitive areas may include some natural resource features that are already protected through state or local regulations. The environmentally sensitive areas identified on Map 5.3 include:  Woodlands  Primary Environmental Corridors  Secondary Environmental Corridors  Isolated Natural Resource Areas  Open Waters. Commented [RM8]: Map updated. Commented [RM9]: Map updated. Map 5.2: Development Limitations •,. ,,,. Franklin WISC O NSIN 8 1 inch : 1 mile I II I I II I 0 ¼ ½ Planning Department 9229 W Loomis Rd Franklin Wl-53132 imile City of Franklin Comprehensive Plan Development Limitations [Z] Floodplain ........ � ... ,,,; City Boundary Wetlands � Parcels 1111 Hydric and partially hydric soils c::J Subcontinental divide (Lake Michigan - Mississippi River) Source: Floodplain: Flood Insurance Rate Map FIRM, Oct. 2024 Wetlands: Wisconsin DNR's Wetland Inventory geodatabase, Nov. 2024 Hydric Soils: Wisconsin DNR Wetland Indicators, Feb. 2022 Subcontinental divide: Wisconsin DNR Major Basins, Aug. 2025. Dec. 2025 Map 5.3: Environmentally Sensitive Areas •,. ,,,,. Franklin 8 WISC O NSIN 1 inch : 1 mile I I I I I I I I O ¼ ½ 1mile Planning Department 9229 W Loomis Rd Franklin Wl-53132 City of Franklin Comprehensive Plan Environmentally Sensitive Areas Environmental Corridors 1111 Primary environmental corridor 1111 Secondary environmental corridor [�����: Isolated natural resource area Source: � Woodlands Surface water r"•"� City Boundary ........ � Parcels Environmental corridors and surface water: SEWRPC, 2020 Woodlands: City of Franklin Comprehensive Plan, 2009 December 2025 Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-23 Special Considerations and Issues “The element shall analyze trends in the ... op portunities for redevelopment and existing and potential land-use conflicts.” Excerpt from Wisconsin State Statute 66.1001(2)(h). Respect for Private Property The comprehensive planning process respects private property by increasing opportunities for public participation, clarifying the scope of land use entitlements for property owners, holding local officials to a higher degree of accountability for plan content, and by allowi ng planning choices to be made by local communities. Input received at public meetings has been reviewed and incorporated where appropriate into all portions of this Plan. Road Improvements Transportation and land use decision s need to be made in tandem. Road expansions and projected traffic counts impact the types of land uses that are approp riate for both new developmen t and redevelopment. In turn, the scale and density of land use impacts the need for new roads or expanded capacity. Therefore, planning for future development and future roads needs to occur simultaneously. Among recent road improvements, it’s worth noting the Elm Road Interchange to I-41 completed in 2021. It’s anticipated that new collector and local streets will be constructed as new development occurs, and that some road expansion projects will occur as development within and adjacent to the City of Franklin occurs. Further information about this topic is set forth in Chapter 7 of this Plan. Development and Redevelopment Opportunities Several development opportunities are identified on Map 5.## as potential projects. This map identifies only larger development areas, small infill projects are also opportunities in the future. This map also does not explicitly show two City-wide deve lopment opportunities. The 2025 Unified Development Ordinance update created new options for Franklin: Accessory Dwelling Units and parking lot redevelopment. The City now permits residential infill with Accessory Dwelling Units (ADUs) in all residential districts. . The update also removed parking minimums for all development types. This chan ge creates an opportunity to redevelop some parking areas into higher value uses. Redeveloping underused pa rking areas could advance the City’s goal of a 70/30 residential to commercial tax base. The below development opportunity areas are also identi fied in the Future Land Use Map. The following is a summary by Neighborhood Planning Area. Area A: Area is primarily built out. One identified single-family residential development southeast of Forest Home and Rawson is proposed to be consistent with adjacent densities. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-24 Area B: Commercial and residential development along Loomis Road is proposed where the infrastructure is available to support such uses. Housing is identified along Ryan Road, west of Loomis Road. Area C: Mixed use development is the main focus at the intersection of Loomis Road and STH 100. The Crossroads Plan should be followed for design development concepts in this area. Area D: Commercial development along the east side of Loomis Road, with housing that transitions to existing neighborhoods to the east, and residential development along the west side of Loomis Road, represent a significant opportunity for future development in the Ci ty. Two major residential areas, both single family housing, are also possible in Area D along Drexel Aven ue and immediately west of the quarry, and west of 76 th Street. Area E: Area is primarily built out with only limited parcels available for housing development. S. 27th Street also provides possible infill and redevelopment opportunities along the commercial corridor. The large number of big-box parking lots in this area also provides an opportunity for infill development. Area F: In addition to possible infill and redevelopment opportun ities along S. 27th Street, there are a few large areas for potential residential developments. Area G: S. 27th Street is the primary development opportunity in this neighborhood. Most other areas are small infill projects or environmental preservation. The Mixed Use Business Park (Planned Development District #39) has several vacant parcels designated for commercial and industrial uses. Area H: Area H represents the largest amount of land available for future development. Both residential and commercial areas are identified, with an emphasis in densities that are appropriate for the area and preserve environmental amenities as natural features. The Ryan Meadows development has vacant parcels designated for industrial use. Area I: The area around 76th Street and Ryan Road is identified as future commercial development. Commented [RM10]: New content. Map 5.4: Potential Development and Planning Areas RYAN RD OAKWOOD RD RAWSON AVE LOOMIS RD 76TH ST 27TH ST 51ST ST DREXEL AVE 68TH ST PUETZ RD 92ND ST LO VERS LAN E RD SOUTH COUNTY LINE RD 60TH ST 112TH ST 116TH ST FO RE ST HO ME AV E 124TH ST NORTH CAPE RD BALLPA RK DR HICKORY ST ST MAR TINS RD COLLEGE AVE 31ST ST FRANK LIN DR 54TH ST 31ST ST WOOD S RD ELM RD FOREST HILL AVE 35TH ST SOUTH COUNTY LINE RD 60TH ST 92ND ST COLLEGE AVE 76TH ST DREXEL AV E A B C D E F GH I I Planning Department 9229 W Loomis Rd Franklin WI-53132 Legend 1 inch : 1 mile 0 ½ 1¼ mile June 2026 City of Franklin Comprehensive Plan Potential Development Areas Potential Commercial Development Potential Residential Development Planning Area Boundaries Parcel Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-26 Existing and Potential Land Use Conflicts Due to the City’s current mix of land uses, conflicts ex ist between high intensity us es, such as the quarry, and low intensity uses, such as single-family housing. Anot her conflict occurs between the proximity of the City’s shopping centers and commercial districts to single-family residential developments. In addition, conflict occurs during the development of vacant lands located adjacent to existing development, where the residents or owners of the existing development request that the proposed development not occur or be revised in order to retain the areas’ rural or suburban character. The developmen t pattern in Franklin has occurred such that different uses are often located either adjacent or near to one another. Therefore, as future land uses are planned, it is crucial to consider compatibility with surrounding uses , impacts to environmental features, and transitioning differing densities or uses. “Consistency” Requirements Pursuant to Wisconsin Statutes § 66.1001(3), zoning, subdivision and of ficial mapping ordinances need to be “consistent with” the local comprehensive plan. “Consist ent with” means furthers or does not contradict the objectives, goals, and policies contained in the comprehensive plan (Wis. Stats. §66.1001(1)(am). Managing Land Use Conflicts Land use planning aims to balance a community's present conditions with its future needs and goals. Conflict can arise from land uses of different intensities sharing resources or boundaries. Historically, planners sought to keep different land uses separated to "eliminate" these conflicts. However, this practice created country-wide challenges related to job, housing, and transportation access. Modern zoning policies limit land use conflicts by managing the location and intensity of neighboring uses. For example, buffers between residential and industrial uses may limit conflict between these two land uses. Today, many planners and communities promote mixed- use developments to provide benefits in the present and to allow flexibility for different possible futures. The U.S. Environmental Protection Agency outlines some key economic benefits of “Smart Growth” or mixed-use development:. 1 - Economic Advantages of Compact Development: o Higher Revenue Generation per Acre of Land o Infrastructure and Service Delivery Cost Savings o Redevelopment and Reuse Opportunities 1 “Smart Growth and Economic Success: Benefits for Real Estate Developers, Investors, Businesses, and Local Governments.” (2012). Office of Sustainable Communities Smart Growth Program, United States Environmental Protection Agency. https://www.epa.gov/sites/default/files/documents/smart_growth_and_economic_success.pdf Commented [RM11]: Subsection revised. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-27 o Economic Productivity and Job Creation - Economic Advantages of Walkability o Price Premium o Economic Revitalization - Economic Advantages of a Diverse Range of Choices o Meeting Market Demand o Responding to Changing Demographics o Reducing Housing and Transportation Costs Long-range plans provide context and actions to guide a community into its desired future. However, there is no one appropriate future because communities are dynamic and it is not possible to predict the future. Plans should aim to manage new land use conflict that may occur as a community moves toward its goals. For example, the timeline of development and redevelopment can be un predictable. It is important that plan updates are regular and respond to important community changes. While these updates may seem like inconsistencies, they are a necessary part of the planning process. Traditional Neighborhood Development (TND) Wisconsin State Statute 66.1027, Traditional Neighbor hood Developments and Conservation Subdivisions, requires every city and village, with a population of at least 12,500, to enact an ordinance that is similar to the model traditional neighborhood development ordinance that is developed under sub. (2) (a) of that statute. State Statutes define Traditional Neighborhood Develo pment as “A compact, mixed-use neighborhood where residential, commercial, and civic buildings are within close proximity to each other.” In essence, it is a type of development patterned on traditional small town and city neighborhood development principles. Within Milwaukee County, an example of this type of developmen t is found in the Village of Greendale (south of W. Grange Avenue between S. 76th Street and W. Loomis Road), and is referred to as the Village’s historic Village Center. It includes the Village Hall, several businesses , over 300 homes (comprised of a mix of single-family homes, multi-family homes, and row houses), walking paths, and ample amounts of green space. As noted in “A Model Ordinance for a Traditional Neighborhood Development”, dated April 2001, and prepared by Brian W. Ohm, James A. LaGro, Jr., and Chuck Strawser, “While there is no single model for a traditional neighborhood development, certain principles define this type of development.” These principles can include: compact development; mixed uses; multiple modes of transportation; and responsiveness to cultural and environmental context. Even though the Unified Development Ordinance (Sec tion 15-10-04) allows Traditional Neighborhood Development as a planned development overlay. It’s recommended that the city enacts a traditional neighborhood development ordinance, adapting the lang uage and concepts of the model ordinance to fit the city’s unique circumstances. Commented [RM12]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-28 Conservation Subdivision Ordinance Wisconsin’s comprehensive planning legislation defines a “Conservation Subdivision” as: “a housing development in a rural setting that is characterized by compact lots and common open space, and where natural features of land are maintained to the greatest extent possible.” Conservation Subdivisions can occur in a variety of settings, such as in urban areas, in a transition area between clearly rural and urban areas or in rural settings. As stated in Chapter 2, different types of community character ranging from urban to suburban to rural are found in the City of Franklin. Most of the development in the City of Franklin can be described as suburban in character. Suburban character is typically prized for its balance between buildings and open space, both through spatial relationships as well as design. On the other hand, the southern third of the City, particularly the southwest area, retains significant rural character. The fundamental characteristic of rural environments is open space – lands that are essentially void of vertical structures and traversed by few roads. Conservation subdivision design concepts promote and encourage the clustering of homes to create a permanent network of open space. Often forty percent to eighty percent of a site is permanently set aside for open space. The preserved land may be managed by a homeowners association, a land trust, or the municipality. Be sides protecting unbuildable areas such as wetlands, floodplains, water bodies, and steep slopes, conservation subdivision design can be used to preserve woodlands, prairie, wildlife habitat, farmland, scenic views, and cu ltural resources. Therefore, by permanently preserving open space, conservation subdivisions would also be preserving community character. Conservation design allows for the same number of residences under current community zoning and subdivision regulations, but can also offer an increase in density to encourage this type of development. Developers benefit from decreased development costs due to less road surface, shorter utility runs, less grading, and other site preparation costs. Municipalities experience lower long term maintenance costs for the same reasons. Conservation subdivision design can also provide: buffers between residential development and non-residential uses; areas for passive and/or active recreational use or trails; areas for stormwater management, and protection of groundwater recharge areas. The implementation of a conservation subdivision ordi nance would help address, or partially address the following goals and objectives from Chapter 2: 1. Preserve and enhance the City’s community character, including individual planning area identities, while directing growth and development.  Protect the City’s remaining natural resource features.  Create a plan that provides direction but allows fl exibility in the development of residential and non- residential areas. 2. Protect environmental resources.  Discourage incompatible development and alteration to floodplains, lakes, rivers, and streams, wetlands, shorelands, steep slopes, and woodland ar eas 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. Commented [RM13]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-29  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. The Unified Development Ordinance was updated in 2025 to further these goals and objectives. Section 15-8- 09 Cluster Development was created to encourage conservation of environmental resources with density bonuses; and Article 7 Natural Reso urce Protection Standards is intended to discourage impacts to environmental resources. It is envisioned that special review of this concept will be required within the southwest portion of the City, and any other areas of the City where public sanitary sewer and water service are not available, but where residential development is to be allowed, in order to ensure that when public services become available, that they can be provided in a cost-effective manner. Infill Development As defined by the Congress of New Urbanism, infill development consists of the development of vacant lands within urbanized areas, the redevelopment of underused buildings and sites, or the rehabilitation of historic buildings for new uses. In Franklin, as briefly discussed in Chapter 6, infill development would mainly involve new development on vacant lots that are currently surrounded by existing developments. Infill development techniques may also be utilized to reuse buildings in the St. Martins area. The Congress of New Urbanism advises that an Infill Development policy or program:  Build community consensus and involvement  Identify important infill sites and zone them to encourage successful infill  Make infill sites appealing by improving infrastructure and amenities  Make infill appealing to lenders, investors, and developers  Market infill sites aggressively  Create design guidelines for infill Consistent with the recommendations in Chapter 6, it i s h e r e i n r e c o m m e n d e d t h a t i n f i l l d e v e l o p m e n t b e encouraged in areas surrounded by existing compatible uses consistent with the principles, goals, objectives and policies of this Plan and the Future Land Use Map. Additionally, it is recommend ed that the City identify areas to be targeted for infill development and promote standards to assist in those areas being developed to fit in with the surrounding uses. Mixed-Use Development Mixed-use developments seek to create pedestrian friend ly environments with a variety of uses that enable people to live, work, play, and shop in one place (as de fined by the American Planning Association). Mixed-use developments include several different uses that work together and share the same infrastructure, utilities, and public amenities. Mixed-use areas are typically higher in density than a single use development. Commented [RM14]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-30 There are several types of mixed-use development designs that may be considered, such as Vertical Mixed-Use Buildings, Horizontal Mixed-Use Sites and Mixed-Use Walkable Areas (American Planning Association). Vertical Mixed-Use Buildings combine different users in the same building. Generally, the lower floor would be utilized by a commercial user with a residential use located ab ove. Another example would be residential, and hotel uses in the same building. Horizontal Mixed-Use Sites combines single-use buildings on distinct parcels in a range of land uses in one planned development project. Mixed-Use Walkable Areas combine both vertical and horizontal mix of uses in an area within an approximately ten-minute walking distance to core activities (American Planning Association). To implement mixed-use development in a community, it is necessary to create a mixed-use zoning district and identify and/or map future/potential areas appropriate for mixed-use zoning. It is also necessary to work with developers to promote and encourage mixed-use developments in these areas. According to the American Planning Association, the benefits of implementing mixed use development in a community can include: Sustainability and Environmental Benefits o More efficient and less consumptive buildings and spaces, which can be less of a burden on the environment. o Reduced vehicle use, which results in less pollution, energy savings, less run-off, reduced land-use, reduced noise and enhanced sense of safety. o Encouragement of walking and cycling – bringing health benefits, reducing the need to own a car and thus reducing emissions. Social Benefits o Creates a sense of community as mixed-use caters to diversity of people and uses in one place, thus providing opportunities for community interaction. o Creates a sense of personal wellbeing as mixed-use offers people convenience, choices and opportunity. o Creates greater user satisfaction by creating convenient access to people, places and activities. o Reduced need to use vehicles for access. This means reduced vehicle use. A social benefit of this is enhanced social equity from improved access for people who do not have access to a car. Economic Benefits o Creates more convenient access to people, places and activities, which results in increased land value (because of greater accessibility), and enhanced viab ility of secondary activity (through mixed primary use). o The proximity of diverse uses makes it possible to reduce vehicle trips and encourage transit ridership. Mixed-use developments can support higher transit use and may be a catalyst for transit facilities in the area. o Mixed-use development can result in more efficient use of land and infrastructure. For example, retail uses can share parking facilities with residential uses, because their peak hours for parking do not overlap substantially; thus, the cumulative parking requirement could be appreciably reduced. Similarly, Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-31 stormwater facilities; sewer; common area maintenance; and central heating, ventilation, and air conditioning can be shared among various uses. o Renovating historic buildings and using them in new ways helps preserve the older urban fabric while providing architectural diversity in mixed-use developments. Safety Benefits o Mixing residential, commercial, and professional ac tivities within a compact area ensures activity throughout the day and evening, creating a sense of safety. For example, the presence of people living in apartments above stores helps reduce the potentia l for vandalism during off-hours, because, for all intents and purposes, there are no off-hours. o Creates a pedestrian-friendly environment and prov ide more opportunities for convenient and safe pedestrian access. o Health Benefits o Increases walking and cycling. This has health bene fits for users including reduced obesity, diabetes, cancer, depression and other illness. The Unified Development Ordinance was updated in 2025 to allow for vertical mixed development in business zoning districts (except Business Park) as permitted as of right use; and to allow for vertical and horizontal mixed- use developments in the South 27 th Street Mixed-Use District (B-MU) an d St. Martins Road Historic Business District (B-SM). Design Standards, Criteria, and Guidelines Urban design refers to the arrangement of buildings, open spaces, destinations, and resources in the built environment. Often, the goal of urban design is to crea te places with community-specific character or identity. Communities can develop design standards/criteria/guide lines to supplement the zoning codes. The use of design standards/criteria/guidelines has over time become a firmly established practice within Franklin with the adoption of the 1992 Comprehensive Master Plan According to Planning and Urban Design Standards, dated 2006 and prepared by the American Planning Association, the purpose of design standards/criteria/guidelines is to:  “Provide a connection between general planning policies and implementing regulations,”  “Convey a sense of the preferred quality for a place,” and  “Address the following five subjects: Overall site design; Use of plant materials; Building orientation and form; Signage; and Public spaces.” The 1992 Comprehensive Master Plan, defined Urban Design Criteria as “a body of information which can be applied to the development of a solution or solutions to a specific urban design problem or set of problems.” The 1992 Plan recommended that the City base its planning decisions upon sound urban design criteria. Additional recommendations included general design criteria for re sidential, industrial, general commercial, and village area commercial development, pertaining to: street, block, and lot layouts and arrangements; general landscaping; utility easements; stormwater drainage an d erosion/sedimentation control; automobile parking; Commented [RM15]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-32 easements; vehicular access and circulation; pedestrian ci rculation; land use spatial considerations; etc. It is recommended that these Urban Design Criteria be inco rporated within the City of Franklin Comprehensive Master Plan by reference except where superseded by more recent standards or guidelines in adopted plans or ordinances. The City of Franklin 2025 Unified Development Ordinance, in Article 5: General Development Standards, sets forth a number of design standards pertaining to: land divisions; traffic, off-street parking and loading, and highway access; landscaping; lighting; screening, exte rior materials and glazing. The Unified Development Ordinance also includes design related standards and/or guidelines for specific uses in Article 4. The City of Franklin has also prepared “City of Frankl in Design Standards and Construction Specifications”, adopted in 2007 and updated in 2017, which pertain to: roadways; sanitary sewers; water distribution system; grading and drainage; street trees; etc. Further inform ation about this topic is located within Chapter 8, Community Utilities and Facilities. In 2009, the Comprehensive Plan listed a series of recommendations for further study. The following have been addressed with the rewrite of the Unified Development Ordinance in 2025:  Update/revision of the City’s architectural standards, such as:  additional stone or brick on multi-family structures; (Sec. 15-5-10.B created to regulate exterior building cladding materials).  additional pedestrian amenities; (new pedest rian circulation standards and bicycle parking requirements added)  Update/revision of the City’s lighting standards;  Review and consider revision of building height limits in select non-residential districts.  Prepare a design manual which includes numerous pictures, figures, and other graphics to help articulate the City’s desired/required design standards, criteria, and guidelines; (numerous illustrations added throughout the UDO).  Update/revise the City’s off-street parking standards; (minimum parking quantity requirements replaced with maximums). However, the following recommendations are still outstanding:  Research the applicability of Crime Prevention Through Environmental Design considerations to the City of Franklin;  Study the feasibility of specific design standards for select locations within the City;  Study the feasibility of incentives for LEED certification and/or the LEED for Neighborhood Development. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-33 Sustainability Sustainability, or sustainable development, is a concept that is still evolving and has many definitions. The State of Minnesota for instance, defines sustainable development as, “Development that maintains or enhances economic opportunity and community well-being while protecting and restoring the natural environmental upon which people and economies depend. Sustainable de velopment meets the needs of the present without compromising the ability of future generations to meet their own needs.” Planning and Urban Design Standards, dated 2006, and prepared by the Americ an Planning Association, indicate s that sustainability is: future oriented/long term; bounded by limits; natural/geographic; means-oriented; holistic/interconnected; and participatory. For purposes of the City of Franklin Comprehensive Master Plan, sustainability is a concept that that is present throughout this Plan, as expressed by the following topics:  Community Character;  Public involvement;  City of Franklin Vision Statement and Mission Statement;  The Principles of High Quality Development and Balanced Development;  The Natural Resource Linkages protection (Map 3.1);  The Economic Development Plan proposal;  Traditional Neighborhood Design, Conservation Subdivisions, Mixed-Use Design, Infill Development, Universal Design, Sustainable Design, and Growth Management; and  Mutual Aid Agreements. In practice, sustainability for the City of Franklin has b e e n m o r e a l i g n e d w i t h p r i nciples of natural resource conservation, a focus on the preservation of natural resources and ecosystems, rather than overall sustainable development and community design. Franklin values parkland and locally designated SEWRPC environmental corridors and prioritizes their prot ection. This has been accomplished through both the 1998 and 2025 UDO, which identify protected resources including water resources and woodlands, and require their protection during the development process. The most common outcome of this protection is the implementation of conservation easements on private property to limit further impacts. Conversely, the land use goals and zoning of the City encourage a development pattern and community design does not comport with the common unders tanding of sustainability: a place that is mindful in its use of limited resources. The result is a City that is spread out, st retching the capacity of land , infrastructure, and services. The resulting community is disjointed, without an identifi able “downtown” and with gaps in City services. This community requires that its residents drive to conduct mo st activities, replaces ecosystems with turf grass in residential areas, and proposes full expansion into farmland for the built-out condition of the future City. Franklin has not taken steps to adopt ecologically sustai nable practices in any area of governance beyond the most limited zoning requirements. A meaningful exploration of options to reduce emissions, resource consumption, and costs by both government and the comm unity as a whole is overdue, and should be part of future planning work. Commented [RM16]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-34 Cost of Development Study A Cost of Development Study determines actual costs to the community for various types of development and land use, and establishes the fiscal impact of such development and use. Community service costs that are examined often include the following:  Public Safety (police, fire, ambulance, inspection, emergency services)  Public Works (sewer, water, garbage collection, recycling)  Transportation (road construction, maintenance, mass transit)  Education (K-12 schools and technical schools)  Culture and Recreation (library, parks, community center)  Health and Human Services (hospitals, elderly care, disability services, cemeteries)  Local Government These costs are then examined for each type of land us e; residential, commercial, manufacturing, agricultural, undeveloped, etc. within the community. In addition, the method that these services are paid for; through local taxation, fees, state and federal subsidies, etc. are also examined. In 1992, a cost of development study found that a new single family detached home costs more to service that it generates in annual revenue: $10,607 cost to service with an estimated annual property tax of $5,000 at that time2, resulting in a ratio of 1:2 (revenue: cost). A Cost of Development study is often most useful to areas undergoing transition, such as Franklin’s south and southwest areas. Other benefits of such a study can in clude: improved local dialogue about land protection strategies; the building of support for comprehensive planning; the improvement of local planning and zoning for agriculture; and the ability to better explain and defend use assessment tax policies. It is recommended that the City of Franklin conduct such a study at its earliest opportunity. Growth Management Growth management is a set of techniques that can be u s e d b y l o c a l g o v e r n m e n t s t o e n s u r e t h a t a s t h e population grows there are services available to meet their demands. These demands for services are not necessarily only government services. Other demands such as the protection of natural spaces, sufficient and affordable housing, delivery of utilities, preservation of buildings and places of historical value, and sufficient places for the conduct of business are also often considered. 2 Hulsey, Brett. “Sprawl Cost Us All: How Uncontrolled Sprawl Increases Your Property Taxes and Threatens Your Quality of Life”. February, 1996. Commented [RM17]: Citation added. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-35 It can be noted that thirteen states in the United Stat es have adopted state growth management legislation to one extent or another that aims to preserve environmentally sensitive areas, improve the quality of urban areas, and reduce urban sprawl. An example is the Growth Management Act passed by the Washington Legislature in 1990. It requires that the fastest growing counties and the cities within them pl an extensively in keeping with state goals on sprawl reduction, concentrated urban growth, affordable housing, economic development, open space and recreation, regional transportation, environmental protection, property rights, natural resource industries, historic lands and buildings, permit processing, public facilities and services, early and continuous public participation, and shoreline management. While growth management to that extent is not present within Wisconsin, the state does utilize individual growth management techniques. One example is the Sewer Se rvice Area Planning requirements of the Wisconsin Department of Natural Resources (which is set forth in Administrative Code NR 121), which requires that the provision of public sanitary sewer service be based up on adopted population projections, the existing and planned capacity of the subject sewerage system, the provision of such service in a cost-effective manner, and the protection of environmentally sensitive areas. An example of the implementation of growth management techniques at the local level includes the application of zoning to reduce the cost of service delivery, by allowing the same number of people to live and work in a smaller area (i.e. increased densities), thereby reducing th e per capita cost of such services as fire protection and emergency medical response (as everything else being equal, such services are less expensive to provide in compact areas than in areas where the population is more spread out). Growth Management techniques can include:  Concurrency or Adequate Public Facilities Requirements;  Local Urban Growth Boundaries;  Higher Exactions, Development Fees and Proffers;  Restrictions on Developable Land;  Regional Tax-Base Revenue Sharing; and  Split-Rate Taxation of Property It is recommended that the City conduct a study of the feasibility of this concept at its earliest opportunity. Land Development Guide A land development guide identifies the existing policies and procedures for the processing of land development projects within the community within one document, and is created specifically for citizens and developers. This guide may include flow charts relating to specific processes. It is recommended that a Land Development Guide be created subsequent to the update of the Unified Development Ordinance, which is also recommended within this Plan. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-36 Purchase of Development Rights (PDR) and Transfer of Development Rights (TDR) Programs As a method to preserve natural areas, open space, and/or agricultural lands in the City, a purchase of development rights program (PDR) and/or transfer of development rights program (TDR) should be explored and pursued. As noted in the “Land Use Guide”, Purchase of Develo pment Rights is a voluntary program in which “… a landowner sells the development rights of his or her land to a local unit of government or qualified organization. A conservation easement is placed on the land and recorded with the title to permanently limit development on the land.” Often the first step in the creation of a Purchase of Development Rights (PDR) program is the preparation by the local unit of government or qualified organization of a plan to: indicate what the goals and objectives of the program will be; identify the types of land they are interested in; and identify funding sources for implementation of the program. When the PDR plan is completed an d approved, offers are made to interested eligible landowners. The landowner can accept, decline, or further negotiate the offer. The amount of the offer is based on a number of variables including: the value of the la nd; the extent of developmen t limitations to be placed upon the land; the length of time the development limitations will apply; etc. Once an agreement is reached, a conservation easement identifying the development limitations is recorded with the deed of the property. The development limitations apply to the current as well as future owners of th e property, subject to the conditions of the agreement and the conservation easement. The length of time the development limitations will be i n e f f e c t s h o u l d b e d e t e r m i n e d a s e a r l y a s p o s s i b l e , consistently applied, and clearly set forth in the plan prepared by the lo cal unit of govern ment or qualified organization. However, it is widely believed that to achieve the maximum benefits from a Purchase of Development Rights program, particularly as it applies to land preservation, such limitations should apply in perpetuity. The “Land Use Guide” indicates that Transfer of Development Rights (TDR) is an incentive-based program that relies upon “… the use of financial rewards, directly or indirectly, to encourage development that would achieve community goals.” A TDR program “… creates a market for buying and selling the rights to develop property. To implement a TDR program, the local governing body must identify one or more ‘sending areas’ where land conservation is sought and one or more ‘receiving areas’ where development of property is desired and can be serviced properly.” As with the Purchase of Development Rights program note d earlier, the local unit of government or qualified organization interested in a Transfer of Development Rights program often first prepares a plan to: indicate what the goals and objectives of the program will be; identify the types of land they are interested in, for both ‘sending’ and ‘receiving’ areas; identify the mechanisms by which the transfer of the development rights from one area of the community to another will be accomplished; and identify funding sources for implementation of the program. When the plan is completed and approved, interested eligible landowners within the ‘receiving’ areas are identified, and offers are made to interested eligible landowners within the ‘sending’ areas. The landowners within the ‘sending’ areas can accept, decline, or further negotiate the offer. The amount of the offer is based Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-37 on a number of variables including: the value of the la nd; the extent of developmen t limitations to be placed upon the land; the length of time the development limitations will apply; etc. Once an agreement is reached, a conservation easement identifying the development limitations is recorded with the deed of the property. The development restrictions apply to the current as well as future owners of the property, subject to the conditions of the agreement and the conservation easement. Such development rights are then transferred to an interested eligible landowner within the ‘receiving’ areas as set forth in the plan prepared by the local unit of government or qualified organization. Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy for the Southwestern Portion of the City The City of Franklin Plan Commissio n, at its November 20, 2008, meeting, adopted the subject “Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Policy for the Southwestern Portion of the City” as an amendment to the City of Franklin Comprehensive Master Plan (see Appendix I). The subject policy was created to address the requests of a number of residents within the southwestern portion of the City for additional development and land division opportunities than were previously allowed by the 1992 Comprehensive Master Plan and the Unified Development Ordinance. Central to this issue was the timing of the provision of public sanitary sewer and water service, and the preservation of the rural/suburban character. As the City was unable to determine when public sanitary sewer and water service would be provided to this portion of the City, it was determined by the Plan Commission (after a number of public meetings and hearings) that an interim policy should be created that would allow additional development and land division opportunities until such time as public services became available, and in a manner that would minimize any adverse impacts upon the future extension of such public services. Additional natural resource protection standards were also included as part of the subject policy to address a number of residents’ concerns about the maintenance of the area’s rural/suburban character. Based upon the information contained within this Plan, it is herein recommended that the “Pre-Sanitary Sewer Land Use/Zoning, Land Division, and Public Services Poli cy for the Southwestern Port ion of the City” as herein revised be incorporated into the City of Franklin 2025 Comprehensive Master Plan. Further changes to the Pre-Sanitary Sewer Land Use/Zoni ng, Land Division, and Public Services Policy for the Southwestern Portion of the City of Franklin, and/or the associated Post-Sanitary Sewer Scenario Map, were made during preparation of the City of Franklin 2025 Comprehensive Master Plan. These changes were made in part in response to public comment, and were supp orted by the Comprehensive Master Plan Update Project Committee, the Plan Commission, and the Common Council. The first change pertains to the future residential lot si zes identified on the Post-Sanitary Sewer Scenario Map. While this change does not directly affect the Pre-Sani tary Sewer Land Use/Zoning, Land Division, and Public Services Policy, it does affect the Future Land Use Plan set forth in this chapter of the City of Franklin 2025 Comprehensive Master Plan. More specifically, this change consists of inclusion of a lot size averaging concept for the southwestern portion of the City which: Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-38  allows a potentially more cost-effective development option for applicable landowners/developers;  applies to those areas of future re sidential land uses identified on the Post-Sanitary Sewer Scenario Map, when public services such as sanitary sewer and municipal water service become available;  enables smaller lots sizes and/or multi-family development within portions of a proposed residential development (subject to appropriate zoning/rezoning ) as long as the overall density of development within the subject project remains consistent with the density set forth on the Post-Sanitary Sewer Scenario Map for the subject area;  provides a greater level of natural resources protecti on than would otherwise be required by this Plan or by the Unified Development Ordinance for Linkag es, Greenways, and/or particularly high value natural resources; and  encourages use of Conservation by Design concepts. The second change pertains to the future land use designation of the lands east of and immediately adjacent to the landfill. The 2009 Comprehensive Master Plan proposed that if the Conservancy land use designation along the east side of S. 112th Street not come to fruition, th at the City supports consideration of re-designation of these lands for light manufacturing or industrial uses. This proposal is no longer relevant as the lands east of 112th Street adjacent to the landfill are now subject to a conservation easement recorded in 2010 and rezoned Parks in 2025. Sidewalks and Trails Detailed information pertaining to recreational trails has been set forth within the City’s Comprehensive Outdoor R e c r e a t i o n P l a n ( w h i c h h a s b e e n i n c o r p o r a t e d b y r e f e r e n c e i n t o t h i s C o m p r e h e n s i v e M a s t e r P l a n ) , a n d i s intended to be updated separately. Ho wever, the City of Franklin Compre hensive Master Plan Update Project Committee determined that this matter also warranted discussion in the Land Use chapter. For this 2026 Comprehensive Master Plan update, Planning Department staff prepared a new Sidewalk and Trail Network Map (5.##) containing the following:  Existing sidewalk and trail network: City of Franklin sidewalk inventory (2025).  Proposed: Comprehensive Outdoor Recreation Plan , Map 7.1 (2010), Planned Development District No. 39 Mixed Use Business Park ( 2016), Ryan Creek Trail Plan (2022) and Oak Leaf Trail extension from the Milwaukee County Trail Network Plan (draft March 2026). With this new map, the proposed sidewalk and trail network increased from 25 miles in the 2009 Comprehensive Plan to 58 miles as shown in the table below. Commented [RM18]: Paragraph updated. Commented [RM19]: Section updated. Ken Wind I Park �Country Dale fl Elementary ! ! iJ, i 0� v !1 !I �I ii i-,- i, !I ii !1 �, ! !I !I �I iii T ,,_ ................. '!: : I ••�11■n■1P .. CJ Mission Hills Neighborhood Wetltnds ;(I' ✓ [:J Whitnall Park )/�- \- -..=..i- - 1 l [ ii iLRy��ee�Tr�f�n _ _ _ _ _______ _ ,■11■1••••••••••••••••••••i•••••••• •••■11■n■n•11■11■11■11■11■11■11 rystal Ridae 11■11■11■1111! ! i �-�············••t' J■"•�•11■11■11■ = Grobschmidt ! � Park •••• ■u•••••••••••••j Root River Parkway r Oakwood Park Golf Course T r Sidewalk and Trail Network Map5.5 Existing network -Trail = Sidewalk* CK:.::> Road Shoulder Proposed network -Trail = Sidewalk* "· .. Type to be determined .1111■111 i ..... ..-= City Boundary Parcels Parks and schools ' - I A _ _ pprox1mate study area of other plans: Ryan Creek Trail Plan (2022) Planned Development District No. 39 (2016) (*) Sidewalks may be located on both sides of the street or on only one side. Source: Existing network: - City of Franklin sidewalk inventory (2025). Proposed network: - City of Franklin Comprehensive Master Plan - Comprehensive Outdoor Recreation Plan (2010) - Planned Development District No. 39 Mixed Use Business Park (2016) - Ryan Creek Trail Plan (2022) - Milwaukee County Trail Network Plan (draft March 2026). I 0 1:40,000 I ¼ ½ 1mile Franklin WISC O NSIN May 2026 Planning Department 9229 W Loomis Rd Franklin Wl-53132 City of Franklin Comprehensive Plan Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-40 Table 5.1: Sidewalk and trail network, existing and proposed City of Franklin (2025), measured in miles Existing (total) 70.4 Proposed (total) 58.2 Sidewalks* 49.8 Sidewalks* 12.4 Trails 17.5 Trails 26.8 Road shoulder 3.1 Type not specified 18.9 Source: Existing: City of Franklin Sidewalk Inventory, last updated in 2025. Proposed: Comprehensive Master Plan (2009), Comprehensive Outdoor Recreation Plan (2010), PDD No. 39 (2016), Ryan Creek Trail Plan (2022). (*) Sidewalk length measured on one side only. As shown on the Sidewalk and Trail Network Map, existing recreation trails within the City of Franklin in 2025 included the approximately 4.5 mile portion of the Milwaukee County Oak Leaf Trail (located along the Root River from approximately W. Ryan Road northward to the City limits with the Village of Greendale), and the approximately 3.5 mile City of Franklin St. Martins Trail (located along the former Interurban right-of-way extending from Ken Windl Park southward to the City limits with the City of Muskego). The St. Martins Trail also includes an approximately 0.5 mile segment within a WEPCO right-of-way which connects to the existing City of Muskego Recreation Trail. The Future Land Use Map also identifies a system of proposed recreational trails, as such trails are recommended in the adopted Comprehensive Outdoor Recreation Plan (CORP), which are incorporated by reference into this compre hensive plan, as well as Planned Development District PDD No. 39 (Mixed Use Business Park) and the Ryan Creek Trai l Plan. These trails are intended to connect many of the existing and proposed parks, outdoor recreation, and open space sites within the City to one another, for example:  The future Ryan Creek Trail the St. Martins Trail at W. Ryan Road, following the course of Ryan Creek to connect to future Franklin Park and Franklin Savannah, the extending eastward to the Oak Leaf Trail.  Future trail system in the Franklin Corporate Park to be connected to a future extension of the Oak Leaf Trail. Furthermore, it is herein recommen ded that the proposed recreational trails and sidewalks be developed, subject to further study and refinement as soon as possi ble as part of the anticipated update of the City’s Comprehensive Outdoor Recreation Plan, or by a separate effort, as may be determined by the Common Council. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-41 Additional information about these existing and proposed trails is presented in Chapter 3 and Chapter 7 of this Plan. LAND USE TRENDS In order to plan for future land uses and development, so und planning practice dictates that it is necessary to first consider existing land uses, existing development, and existing trends. An existing land use inventory, which classifies the different types of land use activities within the community, is the most common method of obtaining existing land use information. Furthermore, by comparing land use inventories from previous years, it is possible to identify existing land use trends. Existing Land Use Inventory (2024) “The element shall contain a listing of the amou nt, type, intensity and net density of existing uses of land in the local governmental unit, such as agricultural, residential, commercial, industrial and other public and private uses .” Excerpt from Wisconsin State Statute 66.1001(2)(h). “The element shall also include a series of maps that shows current land uses …” Excerpt from Wisconsin State Statute 66.1001(2)(h). Land use is often defined as the occupation or use of land or water area for any human activity or purpose. More simply, “A Citizens Guide to Land Use in Wisconsin”, Third Edition, by 1000 Friends of Wisconsin and the Land Use Institute, defines land use as “A description of how land is used.” A land use inventory in turn, is simply an evaluation of the current land use conditions within the community at a specific point in time. For this 2026 plan update, Planning Department staff pr epared a land use inventory with the same land use classification of eleven categories of the 2009 Comprehensive Master Plan: “at the request of the Comprehensive Master Plan Update Project Committee, the land use classification system utilized by SEWRPC was simplified from 35 categories to eleven. However, the original information has been retained so that it can be used to prepare more detailed land use maps and tables if necessary”. This inventory is based on 2020 Southeastern Wisconsi n Regional Planning Commis sion (SEWRPC) data and updated by Planning Department staff through aerial phot ographic interpretation with the most recent aerial imagery (2024) available at the preparation of this plan update. The eleven land use categories are classified in two groups: undeveloped (agricul ture/unused rural, natural resources, recreational, undeveloped lands and water) ; and developed (residential, commercial, industrial, institutional, communication and utilities, and transportation). Per this 2024 land use inventory, undeveloped land uses encompass approximately 56.8% of the city’s area and tend to be located in the southern and western sections of the city, while developed uses account for 43.2%. Commented [RM20]: Section updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-42 Undeveloped land uses  Agriculture/Unused Rural: cropland, pasture, farm buildings; unplatted land, platted lots and unimproved right-of-way where adjacent to this land use category.  Natural Resources: wetlands, woodlands, SEWRPC environmental corridors and isolated natural resource areas as well as areas under conservation easements.  Recreational: parks, athletic fields and golf courses (public and private).  Undeveloped lands: unplatted land and platted lots surrounded by developed land uses.  Water: lakes, streams, natural ponds and stormwater ponds. Developed land uses  Commercial: retail sales, services, hotels and offices.  Communication and utilities: electrical substations, water towers and lift stations.  Industrial: manufacturing, wholesaling, storage, extractive (quarries) and landfills.  Institutional: educational and government facilities, cemeteries, houses of worship, civic organizations, hospitals and correctional facilities.  Residential: single-family, two-family and multi-family residential; as well as mobile home parks.  Transportation: roads and truck terminals, not including unimproved right-of-way. To put these land use amounts in perspective, the following recent land use inventory information from neighboring communities is provided for comparison purposes. The City of Greenfield in 2020 consisted of 91.7% of developed land uses which included: 46% reside ntial; 8% business and o ffice; 0.3% industrial, 7% public parks, and other developed land uses (2020 Gr eenfield Comprehensive Plan). The City of Muskego in 2024, consisted of 31% residential; 2% commercial; 5% industrial uses (including landfills); and 7% right-of-way (Muskego 2035 Comprehensive Plan, draft Dec. 15, 2025). Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-43 Table 5.2: Existing land use in Franklin (2024) Undeveloped Land Use Class Acres % Total Agriculture/Unused Rural 6,147 27.7% Natural Resources 4,278 19.3% Recreational 878 4.0% Undeveloped Lands 915 4.1% Water 370 1.7% Subtotal 12,588 56.8% Developed Land Use Class Commercial 524 2.4% Communication and Utilities 40 0.2% Industrial 1,238 5.6% Institutional 469 2.1% Residential 5,137 23.2% Transportation 2,184 9.8% Subtotal 9,592 43.2% Total 22,180 100% Chart 5.3: Existing land use in Franklin (2024), by percent of city’s area. Not including Communication and Utilities (0.2% ) Existing Land Use (2024) Map 5.6 Land Use Classification with percentage of city's area Agriculture/Unused Rural Lands: 27.7% 1111 Commercial: 2.4% 1111 Communication and Utilities: 0.2% 1111 Industrial: 5.6% 1111 Institutional: 2.1% 1111 Natural Resources: 19.3% Recreational: 4.0% Residential: 23.2% 1111 Transportation: 9.8% >:<:< Undeveloped Lands: 4.1% L-::.--:-):-o'.j Water: 1. 7% i,•,•;,','l City Boundary � Parcels 1_::_), Floodplain (1% annual chance) Source: 2020-2024 updates: City of Franklin Planning Department. 2020 version: Southeastern Wisconsin Regional Planning Commission (SEWRPC). I 0 1:40,000 I ¼ ½ 1mile Franklin WISC O NSIN January 2026 Planning Department 9229 W Loomis Rd Franklin Wl-53132 City of Franklin Comprehensive Plan Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-45 Land Use Trends (1985-2024) “The element shall analyze trends in the supply , demand and price of land...” Excerpt from Wisconsin State Statute 66.1001(2)(h). The 2009 Comprehensive Master Plan analyzed existing land use trends between 1985 and 2005. For this 2026 plan update, Planning staff added land use inventories of years 2010, 2020 and 2024 to analyze existing land use trends. 1985 This year was selected due to available data from the 1992 Comprehensive Master Plan. Table 5.4: Land use in Franklin (1985) Land Use Square Feet Acres % Total Agriculture/Open Lands 545,763,240 15,773 72.5 Commercial 7,666,560 176 0.8 Communication and Utilities 3,179,880 73 0.3 Industrial 6,534,000 150 0.7 Institutional 10,497,960 241 1.1 Recreational 34,194,600 785 3.6 Residential 145,272,600 3,335 15.3 Transportation 52,707,600 1,210 5.6 Total 947,125,080 21,743 100.0% Source: Lane Kendig, Inc. & SEWRPC Please note that the difference of the total size of the City between the 1985 inventory and the 2005 inventory is due to more accurate information available in 2005 (the City limits did not change between 1985 and 2005). Commented [RM21]: Section updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-46 Map 5.7: Existing Land Use in the City of Franklin: 1985 Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-47 2005 The City’s year 2005 land use inventory was initially based upon the Southeastern Wisconsin Regional Planning Commission’s (SEWRPC) year 2000 land use inventory as it pertained to the City of Franklin. It was then updated by City staff based upon year 2005 aerial photographic interpretation. At the request of the Comprehensive Master Plan Update Project Committee, the land use clas sification system utilized by SEWRPC was simplified from 35 categories to eleven. Table 5.5: Land use in Franklin (2005) Undeveloped Land Use 2005 Class Area (acres) Percent Agriculture/Unused Rural Land 5,403.60 24.36% Natural Resources 5,143.43 23.19% Recreational 1,146.02 5.17% Undeveloped Lands 1,493.13 6.73% Water 279.78 1.26% Subtotal 13,465.96 60.71% Developed Land Use 2005 Class Area (acres) Percent Commercial 666.79 3.01% Communication and Utilities 47.74 0.22% Industrial 856.26 3.86% Institutional 335.51 1.51% Residential 4,685.06 21.12% Transportation 2,122.68 9.57% Subtotal 8,714.04 39.29% TOTAL 22,180.00 100.00% A comparison of the 1985 City of Franklin land use inventory (shown in Table 5.3) to the 2005 land use inventory indicates that the amount of the City comprised of undeveloped lands decreased, from about 73 percent in 1985 to about 61 percent in 2005; and correspondingly, developed lands increased, from about 27 percent in 1985 to about 39 percent in 2005. More specifically:  agricultural and other undeveloped lands decreased by about 3,400 acres or about 20 percent;  residential uses increased by about 1,300 acres or about 40 percent;  commercial uses increased by about 500 acres or about 280 percent; and  industrial uses increased by about 700 acres or about 470 percent. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-48 2010-2020 Planning staff selected the years 2010 and 2020 becaus e they correspond to the U.S. decennial census and available land use data from the Southeastern Wisconsin Regional Planning Commission. Table 5.6: Land use in Franklin (2010) Table 5.7: Land use in Franklin (2020) Source: Prepared in-house based on geographical data from SEWRPC. Undeveloped Land Use Class Acres % Total Agriculture/Unused Rural 7,286 32.8% Natural Resources 3,924 17.7% Recreational 791 3.6% Undeveloped Lands 902 4.1% Water 351 1.6% Subtotal 13,254 59.8% Developed Land Use Class Commercial 493 2.2% Communication and Utilities 35 0.2% Industrial 1,008 4.5% Institutional 435 2.0% Residential 4,849 21.9% Transportation 2,107 9.5% Subtotal 8,926 40.2% Total 22,180 100% Undeveloped Land Use Class Acres % Total Agriculture/Unused Rural 6,513 29.4% Natural Resources 4,232 19.1% Recreational 873 3.9% Undeveloped Lands 952 4.3% Water 352 1.6% Subtotal 12,922 58.3% Developed Land Use Class Commercial 519 2.3% Communication and Utilities 39 0.2% Industrial 1,084 4.9% Institutional 469 2.1% Residential 4,996 22.5% Transportation 2,150 9.7% Subtotal 9,258 41.7% Total 22,180 100% Commented [RM22]: New subsection. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-49 Current Land Use Trends This section identifies some of th e major land use changes that have occurred between the 1985 land use inventory (Map 5.##) and the 2024 land use inventory (Map 5.##), and discusses current land use trends within the City. During the 1985-2005 period, the city had a rapid gr owth of 68% in developed land uses. The 2009 Comprehensive Master Plan considered this historic trend and projected a growth of 58% between 2005 and planning horizon 2025. However, the city experienced a slower growth of 7.5% during the 2005-2024 period. Note that most land uses in the developed land group, such as residential as well as commercial and industrial combined, had a similar trend of rapid growth in the 1985-2005 period followed by slower growth. Chart 5.8: Forecasted growth in 2009 versus actual growth (1985-2024) Developed land uses, residential, as well as commercial and industrial Residential Uses: In 2024, residential uses continue to be the predominant developed land use category with 5,137 acres (23.2% of the city’s area), growing 5.9% between 2010 and 2024. The majority of residential land is devoted to single-f amily (87.9%), while multi-family is 7.9% an d two-family is 2.9% (see 2024 City Land Use Highlights). Medium to high single family residential densities (over 2.3 dwelling units per acre) can be found in the northeastern part of the City, as we ll as in condominium and multi-family developments sca ttered throughout the City. The lowest single-family residential densities can be found in the southern portion of the City where public sewer and water are not available in some areas and agricultural uses are still present. Commercial and Industrial Uses: For this 2026 plan update, trends in co mmercial and industrial land uses are analyzed together due to discrepancies in their cla ssification between 2005 and 2024. The 2005 land use inventory classified manufacturing sites in the Franklin Business Park as commercial, while the 2010, 2020 and Commented [RM23]: Subsection updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-50 2024 inventories classified them as industrial. Planning staff considers that industrial is the appropriate category for manufacturing sites in the Franklin Business Park based on the 2015 SEWRPC Land Use Classification. Commercial uses, while largely scattered throughout the City, do occupy a significant portion of a few of the transportation corridors in the City: most of 27th Str eet, portions of Rawson Avenue, Ryan Road, Loomis Road, and Forest Home Avenue. As well as major intersection s: 76th Street and Rawson Avenue, Drexel Avenue and Lovers Lane Road (STH 100), and Loomis Avenue and St. Martins Road (STH 100). The amount of commercial land use grew 6.2% from 2010 to 2024, from 493 to 524 acres (2.2 to 2.4% of the city’s area). Note that the growth rate is very similar to residential land use during the same period. Half of all commercial land is devoted just for off-street parking (see 2024 City Land Use Highlights). The 2025 Unified Development Ordinance eliminated minimum parking requirements to incentivize a more efficient use of the city’s commercial land which represents only 2.4% of the city’s area. Industrial uses occur at Franklin Industrial Park, Fran klin Business Park and alon g portions of Forest Home Avenue. Ryan Meadows and the Franklin Corporate Park also has industrial uses with significant portions of undeveloped land and zoned for industrial uses. The total area of industrial land uses has increased substantially during the 2010-2024 period with a growth rate of 22.9%, from 1,008 to 1,238 acres. It is worth noting that manufacturing and warehousing represent 28% of industrial land, while industrial parking occupies 10%, the Franklin Aggregates Quarry 25% and the Waste Management Metro Landfill 26% (see 2024 City Land Use Highlights). Natural Resources: This land use category is analyzed for the 2010-2024 period because the 1985 inventory didn’t have this category and the 2005 inventory classified a significant portion of agriculture and unused rural lands as natural resources (i.e. 60th Street and S. County Line Road). Note that this category includes: wetlands, woodlands, floodplains, SEWRPC environmental corridors and isolated natural resource areas as well as areas under conservation easements. Even though developed land uses increased in the 2010-2024 period, natural resources areas increased by 9%, from 3,924 to 4,278 acres. This increase is likely due to the long-standing desire of the City to support natural resource protection standards in the Unified Development Ordinance (UDO) in 1998 and maintained in the 2025 UDO. For example, during the approval process for a new subdivision or site, developers must submit a natural resource protection plan to the city outlining all pr esent natural resources (wetlands, wetland buffers, shore setbacks, woodlands, etc.), if the proposal is approv ed, the UDO requires a conservation easement for those identified natural resources. Public agencies own around 25% of all land in the ci ty, presence of floodplains and natural resources are common in publicly owned lands (see 2024 City Land Use Hi ghlights). For example, a significant portion of the floodplain along the Root River is owned by Milwaukee County. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-51 INSERT 2024 Land Use Highlights – Chart 5.9 Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-52 Price of Land According to the City of Franklin Assessor, there are several factors in determining the selling price of land, such as the location of the land, permitted uses (zoning), and availability of utilities. These factors all strongly affect the cost or value of land. As shown below, vacant developable land cost between $15,000 and $250,000 per acre in 2000 and increased to approximately $15,000 to $500,000 per acre in 2023 (not adjusted for inflation): Year 2000  Residential Land - $15,000 to $25,000 per acre  Commercial Land (average) - $90,000 per acre Commercial/Industrial Park - $65,000 per acre Commercial/Retail/Other -$175,000 to $250,000 per acre 2005  Residential Land - $25,000 to $50,000 per acre  Commercial Land (average) - $106,000 per acre Commercial/Industrial Park - $80,000 - $90,000 per acre Commercial/Retail/Other - $200,000 to $275,000 per acre 2008  Residential Land -$25,000 to $50,000 per acre  Commercial Land (average) - $172,000 per acre Commercial/Industrial Park - $80,000 - $90,000 per acre Commercial/Retail/Other - $200,000 to $275,000 per acre 2023  Residential Land, platted - $267,000 to $441,000 per acre Residential Land, unplatted - $15,000 to $137,000 per acre  Commercial Land (average) - $394,000 per acre In general, it can be noted that the price of land continues to increase, although it is reasonable to assume that the amount and rate of increase will be impacted by local, regional, state, and even national market conditions and inflation. Between 2000 and 2008, the cost of commerc ial land in the Business and Industrial Parks was generally less than the cost of land for retail and commercial land throughout the rest of the City; in 2023, it was not possible to analyze this difference due to a small sample size (3 records). Chart 5.10 identifies sale prices of vacant land (per acre) from 2000 to 2023, price range for residential and average price for commercial. This table shows significant increases in residential and commercial land between 2000 and 2023. In 2023, available data allowed to discern between platted and unplatted residential land, it is worth noting the price gap. Commented [RM24]: Section updated with 2023 data. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-53 Chart 5.10: Sales prices of vacant land per acre It is recommended that the City periodically reevaluate this information to determine if any trends are occurring that the City determines are necessary to address. Existing Population Trends According to the US Census (as shown in Table 5.5), the City of Franklin has grown rapidly during every ten year interval since 1950, from a populati on of 3,886 in 1950 to 35,451 in 2010. Following a peak growth rate of 158 percent between 1950 and 1960, Franklin grew by an average of 29 percent per decade between 1960 and 2010. Between 2010 and 2020, the city experienced a very much slower growth rate of 1.8%, this slower growth is expected to be followed by population decline in the next three decades according to population projections by the Wisconsin Department of Administration. Table 5.11: City of Franklin population (1950-2020), and population projection (2030-2050) Population % Change 1950 3,886 - 1960 10,006 157.5% 1970 12,247 22.4% 1980 16,871 37.8% 1990 21,855 29.6% 2000 29,494 35.0% 2010 35,451 20.2% 2020 36,116 1.8% 2030* 35,132 -2.8% 2040* 33,747 -4.1% 2050* 32,299 -4.5% Commented [RM25]: Section updated. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-54 Source: U.S. Census. (*) Population projection prepared by the Wisconsin Department of Administration in 2024. This section compiles existing population trends and their implications for land use planning:  Anticipated population decline for the next three decades.  Even though a population decline is anticipated, total number households may continue grow. During the 2010-2020 decade, population grew by 1.8% while households grew by 12.5%, this trend is likely due to a smaller average household size.  The city experienced an increase in the number multifamily residential units constructed since 2018. Recent approval of the Poths General development indicates that this trend may continue.  Aging population. Residents aged +55 made up a thir d of Franklin’s population compared to only a quarter in Milwaukee County.  Only 7.4% of Franklin residents both live and work in the city (2020).  Less than 1% of worker reported using public transportation or walking for the work commute (2020). The Demographic Profile in Chapter 2 analyses in greater detail thes e population characteristics, such as age, fertility, educational attainment, employment and households. Appendix C City of Franklin Demographic Variables and Comparisons provides detailed data tables. Future Land Use Trends This section discusses future land/use development and populations trends utilizing past and present information. Future Population Growth and Trends Population change has two components. (1) natural change: birth minus deaths, fertility and mortality rates that tend to be somewhat predictable. (2) net migration: in-movers minus out-movers, net migration tends to change more quickly and is less predictable. As shown on Table 5.##, according to the Wisconsin Department of Administration’s Demographic Services Center, the population between 2020 and 2050 is ex pected to decrease to 32,299 (about 10%), a sharp contrast with the rapid growth rate that the City experienced since 1960. It’s worth noting that only three of the 19 municipalities in Milwaukee County are expected to have population growth. Table 5.12, Comparison of population projections. City of Franklin US Census DOA Projection % Change SEWRPC Projection % Change 2020 36,116 - - 2030 35,132 -2.8% - - 2040 33,747 -4.1% - - 2050 32,299 -4.5% (-10.6% accumulated) 51,150 41.6% Sources: Wisconsin Department of Administration DOA (2024); Southeastern Wisconsin Regional Planning Commission SEWRPC (2024) Commented [RM26]: The following sections were not updated when the 1st draft was presented to the Plan Commission. These section have been updated fro the 2nd draft. Chapter 5: Land Use Franklin 2050 Comprehensive Master Plan 2nd Draft (June 2026) 5-55 According to the Department of Administration, Demographic Services Center, in prior decades, it was common to infer population increases associat ed with counties dominated by new suburban development, this factor appears to be less salient in the 2024 population projections as age distribution and fertility rates are becoming more salient. To expect a population growth similar to prior decades would require one or more of the following demographic shifts: a large decrease in mortality, a large increase in fertility or a large increase in net-in migration. A future large decrease in mortality is unlikely as the baby boomer generation (born 1946-1964) will enter higher- mortality age groups; and a large increase in fertility is also unlikely due to an inverted population pyramid in 2020. A large increase in net-in migration is uncertain. The regional plan Vision 2050 prepared by the So utheastern Wisconsin Regi onal Planning Commission (SEWRPC) is based on an intermediate growth scenario of 51,150 inhabitants for 2050 (about 41% growth from the 2020 population). Alternatively, the plan also estimates a high-growth scenario with a population of 54,900. As noted above, an intermediate or high growth scenario would require demographic shifts. Build-out population projection Yet another means for population projection involves esti mating the number of new residential land that could potentially be created within the City. Multiplying the acreage of potential residential land by the persons per acre of residential in 2020, one can determine a projecte d population at the time of complete build-out in the City. The Future Land Use Map 2050 designates 6,409 acres for re sidential uses (single-family and multi-family). In 2020, the city had 4,996 acres of residential use and a population of 36,116 (7.2 persons per acre or 2.9 dwelling units with an average household size of 2.46 from the 2020 US Census). Therefore, the Future Land Use Map could be expected to allow for a population of 46,144 at complete build-out. This projection assumes a density of approximately 2.9 dwelling units per acre, factors like multifamily developments, mixed use developments in commercial areas, smaller residential lots, and accessory dwelling units may accommodate a greater population. In comparison, the Southeastern Re gional Plan Commission (The Commi ssion) projects a 2050 population of 54,900 Fra