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City of Plymouth Comprehensive Plan ______ Disclaimer

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 i

VANDEWALLE & ASSOCIATES 2006. All rights reserved. The party to whom this document is conveyed (“Client”) from VANDEWALLE & ASSOCIATES is granted the limited, non-transferable, non-exclusive right to copy this document in its entirety and to distribute such copies to others. In no event shall VANDEWALLE & ASSOCIATES be liable to Client or any third party for any losses, lost profits, lost data, consequential, special, incidental, or punitive damages, delays, or interruptions arising out of or related to the recommendations contained in this document. VANDEWALLE & ASSOCIATES shall not be liable or otherwise responsible for any future modifications to this document or their effect on the results of the implementation of the recommendations contained herein. In the event that Client modifies this document, the following disclaimer applies: This document is based on copyrighted materials of VANDEWALLE & ASSOCIATES. This document contains modifications that have not been reviewed or approved by VANDEWALLE & ASSOCIATES. As a result, VANDEWALLE & ASSOCIATES expressly disclaims any and all warranties associated with, or liability resulting or arising in any way from, this modified document.

City of Plymouth Comprehensive Plan ______ Disclaimer

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 ii

City of Plymouth Comprehensive Plan Acknowledgements

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 iii

ACKNOWLEDGEMENTS COMMON COUNCIL: CITY PLAN COMMISSION: Donald Pohlman, Mayor Donald Pohlman, Chair Charles Hansen, Council President Jim Faller, Commission Member Jack Fernsler, Council Member Jim Flanagan, Commission Member John Anderson, Council Member Roger Laning, Commission Member Jeremy Reilly, Council Member Peter Rammer, Commission Member Jim Sedlacek, Council Member William Barbieur, Commission Member Jim Faller, Council Member Dan Feldner, Commission Member Jackie Jarvis, Council Member Ron Lade, Council Member CITY STAFF: COMPREHENSIVE PLAN WORK GROUP: Brian Yerges, AICP Director of City Services Mayor Pohlman, Mayor/Plan Commission Chair Crystal Fieber, City Attorney Jim Faller, Common Council/Plan Commission Patricia Huberty, Clerk-Treasurer Jim Flanagan, Plan Commission William Immich, P.E. Director of Public Works Pete Rammer, Plan Commission John MacKinnon, P.E. Utilities Manager Brian Yerges, AICP Director of City Services Pete Scheuerman, Building Inspector William Immich, P.E. Director of Public Works Ron Nicolaus, Fire Chief John MacKinnon, P.E. Utilities Manager Jeff Tauscheck, Police Chief Ron Nicolaus, Fire Chief Martha Rosche, Library Director Gene Blindauer, Town of Plymouth Representative 2011 Plan Amendment Assistance by: Kevin Struck, Growth Management Educator UW-EXTENSION Sheboygan County Original Planning, Design, and Redevelopment Assistance by: VANDEWALLE & ASSOCIATES Mike Slavney, AICP, Principal Planner Brad Davis, Project Manager Robin Wettstein, Assistant Planner Aaron Brault, Cartographer

City of Plymouth Comprehensive Plan Acknowledgements

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 iv

City of Plymouth Comprehensive Plan Executive Summary

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 v

CITY OF PLYMOUTH COMPREHENSIVE PLAN The Planning and Development Challenge During the 1990s, the City of Plymouth entered a period of profound change and challenge. At the beginning of the decade, the City recorded a population of 6,769 persons. By 2000, the estimated population in Plymouth grew to 7,781 persons. In those intervening years, the City experienced its largest building boom in its history. The City annexed over 400 acres of developable land and added nearly 700 new dwelling units to its housing stock. In this same period, the City of Plymouth encountered its first substantial wave of development typical of growing mid-sized communities—strip shopping centers, “big box” retailers, fast food restaurants, and concentrations of multi-family development. This type of growth did not continue through the 2000s, however, as national, state, and local housing markets and economies slowed substantially. The City’s population stood at 8,445 in 2010, a moderate increase of 8.5% during the 2000s, in comparison to the “boom” of 15% during the 1990s. Plymouth’s development over the last two decades has occurred in a community setting that has been, and should continue to be, shaped by its natural surroundings and distinct history. The rolling topography of the Kettle Moraine provides a leaf-covered backdrop for many City residents. The meandering Mullet River, with its dam and millpond, contribute to Plymouth’s scenic beauty and “small town” charm. Much of the City’s history is captured in the downtown’s brick buildings and carriage shops, in the old cheese and furniture factories that line the rail corridor, and in the Victorian homes that tower above Yankee Hill. Combined, these natural and cultural features contribute to Plymouth’s unique “sense of place” in the larger region. The Intent of this Plan This is a Comprehensive Plan for a community that is projected to reach a population of 10,000 to 11,000 people by 2025. The Plan is intended to guide this future growth in a manner that enhances Plymouth’s sense of place and works in concert with adjacent jurisdictions, the County, and State. The Plan intends to capture the benefits of growth by diversifying the range of goods and services available to the community, enhancing employment opportunities, and bolstering the City’s non-residential tax base. Capturing these benefits will not be easy. Few communities in the path of growth have been able to gather the benefits of growth without encountering the problems. To address this critical concern, the City intends to carefully and continually evaluate the evolving impacts of development on its character. In this manner, the City will use its character to determine growth, rather than allowing growth to determine its character. A Revitalized Downtown Plymouth’s historic downtown—focused along Mill Street—has struggled in recent years as it competes with strip commercial development on the City’s east side. However, with planned residential growth on the City’s west side, and regional commercial and office development planned for the City’s east side, the downtown area’s location in the heart of Plymouth is well-positioned to attract neighborhood- and community-oriented retail and service uses. The Plan envisions a downtown area with a mix of retail outlets, professional offices, eating and drinking establishments, community and cultural facilities, parks and trail corridors, and residential development. To achieve this vision, the Plan strongly recommends the implementation of the Plymouth Downtown Revitalization Master Plan.


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 vi

Planned Economic Development The City intends to focus economic development efforts on the long-range development of a high-quality business park along the State Highway 23 frontage area on the northeast side of Plymouth. This business park is proposed to promote strong quality regional office and office-support facility development along with medical, hotel, conference center, financial and entertainment land uses. This high-quality business park will serve to distinguish Plymouth from other cities in the region which have permitted similar interchange locations to fill up with strip and “big box” development. Very high standards of site design, building materials, landscaping and signage are essential components of this strategy. Planned Commercial Development This Plan addresses a key issue facing most growing communities in Wisconsin: the need to protect and enhance the “small town” character of the community while at the same time providing logical, complementary, and predictable land use patterns that respond efficiently to market demand. Through the implementation of this Plan, the City intends to strongly control the appearance of commercial development in Plymouth. Future large-scale regional commercial development is directed to areas along State Highway 57 and Eastern Avenue on the City’s east side. Because these commercial corridors establishes the primary “front door” image of the community, the Plan recommends strict site planning and landscaping requirements and coordinated signage treatments in this area. Planned Residential Growth Over the next 10 to 15 years, the City intends to guide most future residential development to the south and west sides of the community. To ensure that Plymouth retains a character focused on single-family oriented neighborhoods, the City advocates planned neighborhoods that disperse two-family and multi-family residences in small clusters in new developments, rather than focusing such development in a few large concentrations. The Plan also recommends a highly integrated neighborhood planning process that encourages interconnected local streets and sidewalks, protects significant environmental features, identifies future park sites and bike routes, and establishes appropriate buffer treatments where conflicting land uses are unavoidable. The result of these planning efforts will be more “livable” neighborhoods that strengthen the complete identity of Plymouth. Transportation System The City intends to ensure that the local transportation network logically and efficiently serves the community’s existing and desired land use pattern. The Plan calls for an interchange at STH 23 and CTH E as the highway is upgraded by WisDOT and an extended STH 23 frontage road on the northeast side of Plymouth to serve high-quality business park and commercial development. This road must be designed to reduce, rather than cause, traffic congestion in this part of the community. The Plan shows conceptual alignments for new streets to efficiently serve expanding development. A comprehensive bikeway plan for the City is proposed to radiate out from the downtown area to all corners of the community. The Plan recommends adoption of an Official Map to reserve the right-of-way of future streets, bike paths, and other public facilities—both within the city limits and its extraterritorial area.


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 vii

Parks, Trails, and Open Spaces Downtown Plymouth is also intended to form the focal point of an extensive communitywide trail network linking both existing and planned public parks and trail corridors. This network will use a cost-effective combination of off-street trails, sidewalks and paths to link all neighborhoods, parks, employment centers and shopping areas in the City. Intergovernmental Relations The Plan calls for strong coordination with adjacent and nearby local units of government. Specifically, the Plan advocates the wisdom of entering into a long-term intergovernmental planning arrangements with the Towns of Plymouth and Sheboygan Falls, and the City of Sheboygan Falls, to meet mutual land use and land development goals—particularly the conservation of rural character through compact development. Plan Implementation For the most part, the City will be implementing the recommendations of this Plan through the development review process—thus substantially reducing the costs of implementation to City taxpayers. One of the most cost effective implementation strategies is for the City to adopt strategic changes to its Zoning and Subdivision Ordinances that ensure all land divisions are extensively reviewed for compliance with adopted Plans, and that ensures a high degree of site planning, building materials, landscaping, and signage is used for all multi-family, office, commercial, and industrial development. Plan Monitoring and Adjusting Finally, the City recognizes that no Plan is perfect—especially over time. To best serve the community, the City pledges to conduct a review of this Plan on an annual basis to ensure that its recommendations remain on track, and responsive to evolving concerns. The City will also be using a combination of public participation strategies to ensure both general broad-based, and detailed input focused on particular issues and planning challenges. Conclusion With this updated Comprehensive Plan, the City strives to balance the control of development and the quality of development with the economic climate of today and the future. The need to develop high quality projects must be balanced with the need to protect the integrity of the historic character of the community, while at the same time providing affordable services and living for the residents of the community.


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 viii

City of Plymouth Comprehensive Plan Table of Contents

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 ix

TABLE OF CONTENTS

DISCLAIMER……………..................................................................................................................................... i

ACKNOWLEDGEMENTS.................................................................................................................................. iii

EXECUTIVE SUMMARY.................................................................................................................................... v

TABLE OF CONTENTS...................................................................................................................................... ix

TABLE OF GRAPHICS..................................................................................................................................... xiii

PART ONE: ISSUES AND OPPORTUNITIES .................................................................. 1

I. INTRODUCTION..................................................................................................................................... 3

A. PURPOSE OF THIS PLAN .......................................................................................................................................... 3 B. PLAN DEVELOPMENT PROCESS............................................................................................................................. 3 C. GENERAL REGIONAL CONTEXT ........................................................................................................................... 4 D. SELECTION OF THE PLANNING AREA ................................................................................................................. 4

II. BACKGROUND INFORMATION.......................................................................................................... 5

A. AGRICULTURAL, NATURAL AND CULTURAL RESOURCES .................................................................................. 5 1. Agricultural Resources ............................................................................................................................ 5 2. Natural Resources..................................................................................................................................... 5 3. Cultural Resources.................................................................................................................................... 8

B. POPULATION TRENDS AND FORECASTS.....................................,,,,,,,,,,,................................................................. 9

Table 1: Population Trends.............................................................................................................. 9

Table 2: Population Projections..................................................................................................... 10

1. Demographic Trends and Forecasts .......................... ........................................................................ 10

Table 3: Demographic Characteristics ......................................................................................... 11

2. Household Size Trends and Forecasts.................................... ............................................................ 11

Table 4: Household Characteristic Comparisons .......................................... ............................. 11

C. EXISTING LAND USE.............................................................................................................................................. 12

1. Land Use Map Categories...................................................................................................................... 12 2. Existing Land Use Pattern..................................................................................................................... 13

Table 5: Existing Land Use Totals................................................................................................. 16

3. Land Development Trends ................................................................................................................... 16

Table 6: Land Annexed into City of Plymouth, 2001 – 2010 ...................................................... 17

4. Existing Land Use Conflicts................................................................................................................... 17

D. TRANSPORTATION NETWORK.............................................................................................................................. 17 1. Roadways …............................................................................................................................................. 17

Table 7: Average Daily Traffic Volumes, 1999-2008 ................................................................... 18

2. Airports ......,.................... ......................................................................................................................... 19


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 x

3. Rail ............................................................................................................................................................ 20 4. Pedestrian and Bicycle............................................................................................................................. 20 5. Inter- and Intra-City Transportation..................................................................................................... 21 6. Electric Personal Mobility Assistive Devices ...................................................................................... 21 7. Review of State and Regional Transportation Plans..,........................................................................ 22

E. UTILITY AND COMMUNITY FACILITIES ................................................................................................................ 23

1. Sewer and Water Service....................................... ................................................................................. 23 2. Community Facilities............................................................................................................................... 24 3. Schools ...................................................................................................................................................... 25 4. Parks and Recreation Facilities .............................................................................................................. 26 5. Sheboygan County Fairgrounds............................................................................................................. 28

F. HOUSING FRAMEWORK……................................................................................................................................... 28

1. Housing Stock Characteristics ............................................................................................................... 28

Table 8: Housing Types: 2000, 2010 .............................................................................................. 28

Table 9: Housing Development, 2000 – 2010 ................................................................................ 28

Table 10: Housing Stock Characteristics....................................................................................... 29

2. Housing Condition ................................................................................................................................... 29

Table 11: Age of Plymouth Housing............................................................................................... 30

3. Housing Programs..................................................................................................................................... 30

G. ECONOMIC DEVELOPMENT FRAMEWORK…........................................................................................................ 31 1. Labor Force Trends and Forecasts ........................................................................................................ 31

Table 12: Economic and Labor Force Characteristics ................................................................ 31

2. Economic Base .......................................................................................................................................... 32 3. Environmentally Contaminated Sites...................................................................................................... 32 4. Economic Development Programs......................................................................................................... 33

Table 13: Plymouth’s Economic Strengths & Weaknesses.......................................................... 34

H. INTERGOVERNMENTAL COOPERATION................................................................................................................ 35

1. City of Plymouth........................................................................................................................................ 35 2. Cities and Villages...................................................................................................................................... 35 3. Towns........................................................................................................................................................... 35 4. Sheboygan County...................................................................................................................................... 35 5. Regional Planning Jurisdictions ............................................................................................................... 35 6. Important State Agency Jurisdictions ..................................................................................................... 36 7. Sanitary Sewer Service Areas and Districts ............................................................................................ 36 8. School District............................................................................................................................................. 36

I. IMPLEMENTATION.................................................................................................................................................... 36

III. ISSUES AND OPPORTUNITIES IDENTIFICATION……….…........................................................ 37

A. DATA SYNTHESIS ..................................................................................................................................................... 37 B. PUBLIC PARTICIPATION .......................................................................................................................................... 37

1. Community Vision Forum........................................................................................................................ 37 2. Open House ............................................................................................................................................... 38

C. KEY PLANNING ISSUES AND CHALLENGES.......................................................................................................... 38


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 xi

PART TWO: GOALS, OBJECTIVES AND POLICIES ....................................................... 41

IV. PLANNING GOALS, OBJECTIVES AND POLICIES.......................................................................... 43

A. AGRICULTURAL, NATURAL, & CULTURAL RESOURCES.......................................................................................... 43

B. COMMUNITY CHARACTER AND GROWTH MANAGEMENT…................................................................................. 44

C. LAND USE GOALS AND OBJECTIVES ........................................................................................................................ 45

D. TRANSPORTATION GOALS AND OBJECTIVES......................................................................................................... 45

E. UTILITIES AND COMMUNITY FACILITIES GOALS AND OBJECTIVES ..................................................................... 46

F. HOUSING GOALS AND OBJECTIVES........................................................................................................................... 47

G. ECONOMIC DEVELOPMENT GOALS AND OBJECTIVES.......................................................................................... 47

H. INTERGOVERNMENTAL COOPERATION ................................................................................................................... 48

I. IMPLEMENTATION......................................................................................................................................................... 49

V. POLICIES....................................................................................................................................................... 51

A. AGRICULTURAL, NATURAL AND CULTURAL RESOURCES ........................................................................................ 51

B. COMMUNITY CHARACTER AND GROWTH MANAGEMENT ...................................................................................... 51

C. LAND USE....................................................................................................................................................................... 52

D. TRANSPORTATION POLICIES....................................................................................................................................... 60

E. UTILITY AND COMMUNITY FACILITIES....................................................................................................................... 61

F. HOUSING ........................................................................................................................................................................ 62

G. ECONOMIC DEVELOPMENT........................................................................................................................................ 62

H. INTERGOVERNMENTAL COOPERATION................................................................................................................... 63

I. IMPLEMENTATION......................................................................................................................................................... 63

PART THREE: PLAN RECOMMENDATIONS................................................................... 65 VI. COMPREHENSIVE PLAN RECOMMENDATIONS…........................................................................... 67

A. AGRICULTURAL, NATURAL, & CULTURAL RESOURCES.......................................................................................... 67

1. Agricultural Preservation ........................................................................................................................... 67 2. Natural Resource Preservation ................................................................................................................. 67 3. Historic Preservation................................................................................................................................... 67

B. COMMUNITY CHARACTER & GROWTH MANAGEMENT PLAN.............................................................................. 68

1. Community Character Components ........................................................................................................ 69 2. Community Edges ...................................................................................................................................... 72 3. Community Entryways................................................................................................................................ 72

C. LAND USE PLAN ........................................................................................................................................................... 74

1. Land Use Recommendations within the Current City Limits .............................................................. 76 2. Land Use Recommendations for the Peripheral Area............................................................................ 79 3. Land Use Recommendations for Other Perimeter Areas...................................................................... 83 4. Five-Year Incremental Land Use Projections.......................................................................................... 85

Table 14: Planned Land Use Acreage Totals – Plymouth ETJ Area........................................ 86


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 xii

D. TRANSPORTATION PLAN ........................,,,,,,,............................................................................................................ 86 1. Major Arterial Streets .................................................................................................................................. 87 2. Collector Streets............................................................................................................................................ 87 3. Local Streets ................................................................................................................................................. 88 4. Pedestrian and Bicycle Facilities ................................................................................................................ 88 5. Inter-City Transit ......................................................................................................................................... 90

E. UTILITIES AND COMMUNITY FACILITIES PLAN ..................................................................................................... 90 1. Park and Recreation Facilities ................................................................................................................... 90 2. Other Municipal Facilities and Services.................................................................................................... 91

Table 15: Forecasted Needs for Utilities and Community Facilities.......................................... 93

3. Public School Facilities ............................................................................................................................... 94

F. HOUSING PLAN............................................................................................................................................................ 94 1. Projected Housing Needs........................................................................................................................... 94 2. Affordable Housing Programs................................................................................................................... 94 3. Promoting Land for the Development of Affordable Housing........................................................... 95 4. Housing Balance Plan ................................................................................................................................. 95

G. ECONOMIC DEVELOPMENT PLAN........................................................................................................................... 96 1. Desired New Businesses and Industries.................................................................................................... 96 2. Economic Attraction and Retention.......................................................................................................... 96 3. Brownfield Redevelopment......................................................................................................................... 96

PART FOUR: IMPLEMENTATION .................................................................................. 99 VII. PLAN IMPLEMENTATION..................................................,,,,,,,,,...................................................... 101

A. MORE DETAILED PLANNING EFFORTS .............................................................................................................. 101

B. REGULATIONS.......................................................................................................................................................... 101 1. Zoning Ordinance ..................................................................................................................................... 101 2. Land Division Ordinance ......................................................................................................................... 102 3. Floodplain Ordinance ............................................................................................................................... 103 4. Official Map................................................................................................................................................. 103 5. Building/Housing Codes........................................................................................................................... 103

C. PUBLIC INVESTMENT.............................................................................................................................................. 104 1. Capital Improvements Program (CIP)..................................................................................................... 104 2. Impact Fees ................................................................................................................................................. 104 3. Development Review Cost-Recovery ..................................................................................................... 104

D. INTERGOVERNMENTAL COOPERATION ............................................................................................................ 104 1. State Issues.................................................................................................................................................... 104 2. County Issues .............................................................................................................................................. 105 3. Local / Interjurisdictional Issues.............................................................................................................. 105 4. Plan Procedures .......................................................................................................................................... 106 5. Plan Implementation Sequence and Coordination................................................................................. 107

Table 16: Plan Implementation Strategies and Timeline.......................................................... 107

6. Consistency Among Plan Elements.......................................................................................................... 107 APPENDIX A – Boundary, Land Use, and Transportation Maps

APPENDIX B – State Historical Society’s Architecture and History Inventory

APPENDIX C – Tax Increment Financing District Maps

APPENDIX D – Fiber Optic Network


Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 xiii

TABLE OF GRAPHICS

Table 1: Population Trends ............................................................................................................................................ 9

Table 2: Population Projections ....................................................................................................................................10

Table 3: Demographic Characteristics .........................................................................................................................11

Table 4: Household Characteristic Comparisons .......................................................................................................11

Figure 1: Linear Development Pattern in Plymouth .................................................................................................14

Figure 2: Curvilinear Development Pattern in Plymouth .........................................................................................14

Table 5: Existing Land Use Totals ...............................................................................................................................16

Table 6: Land Annexed into City of Plymouth, 2001 – 2010 ..................................................................................17

Table 7: Average Daily Traffic Volumes, 1999-2008 ................................................................................................18

Table 8: Housing Types, City of Plymouth: 2000, 2010 ...........................................................................................28

Table 9: Housing Development, City of Plymouth: 2000 – 2010 ...........................................................................28

Table 10: Housing Stock Characteristics......................................................................................................................29

Table 11: Age of Plymouth Housing ...........................................................................................................................30

Table 12: Economic and Labor Force Characteristics ..............................................................................................31

Table 13: Plymouth’s Economic Strengths and Weaknesses ...................................................................................34

Figure 3: Desired Municipal Family Residential Project Layout .............................................................................55

Figure 4: Desired New Commercial Project Layout .................................................................................................56

Figure 5: Desired New Industrial Project Layout ......................................................................................................59

Table 14: Planned Land Use Acreage Totals – Plymouth ETJ Area ......................................................................86

Figure 6: Off-Street Path Cross-Section ......................................................................................................................89

Table 15: Forecasted Needs for Utilities and Community Facilities .......................................................................93

Table 16: Plan Implementation Strategies and Timeline .........................................................................................107

Map 1: Jurisdictional Boundary Map ................................................................................................ A-1

Map 2: Existing Land Use .................................................................................................................... A-2

Map 3: Transportation ......................................................................................................................... A-3

Map 4a: Planned Land Use: Central Area ......................................................................................... A-4

Map 4b: Planned Land Use: Plymouth ETJ Area ............................................................................. A-5

Map 5a: Transportation Plan and Community Facilities ................................................................. A-6

Map 5b: Planned and Existing Bicycle Transportation Network .................................................... A-7

City of Plymouth Comprehensive Plan Part One: Issues and Opportunities

Adopted: June 12, 2001 Adopted 10-Year Update: July 12, 2011 1

PART ONE: ISSUES AND OPPORTUNITIES

City of Plymouth Comprehensive Plan Chapter I: Introduction




I. INTRODUCTION

A. PURPOSE OF THIS PLAN The City of Plymouth Comprehensive Plan is a blueprint for the short-range and long-range growth and development of Plymouth. The Plan is designed to be used by City officials and citizens as a policy guide to:

• Direct community development decisions and land use decisions; • Assist with community facility budgeting; and • Focus and stimulate private housing, business, and industrial investment in the community.

As a long range comprehensive planning tool concerned with a wide variety of environmental, economic, and social factors, this Comprehensive Plan must examine and provide recommendations for areas both within the City of Plymouth’s corporate limits and beyond. Wisconsin Statutes (§66.1001) require that a Comprehensive Plan include the following nine elements 1.) Issues and Opportunities (providing the basis for goals, objectives, policies, and programs to guide future development over a 20-year planning period), 2.) Housing, 3.) Transportation, 4.) Utilities and Community Facilities, 5.) Agricultural, Natural and Cultural Resources, 6.) Economic Development, 7.) Intergovernmental Cooperation, 8.)Land Use, and 9.) Implementation. A governing body (e.g. , Common Council) may not enact an ordinance adopting or amending a Comprehensive Plan unless the document contains all of the specified elements.

This Comprehensive Plan is organized in four sections based on sound planning principles and contains all of the required elements listed above. Part One: Issues and Opportunities, gives an overview of important political, natural, socio-economic and existing development data in the community. Part Two: Goals, Objectives, and Policies, outlines the policy desires of the community and provides the basis for Part Three: Comprehensive Plan Recommendations, which describes detailed recommendations for community character, land use, transportation, community facilities and utilities, housing, and economic development. Part Four: Implementation provides recommendations, strategies, and timelines to ensure the implementation of this Plan.

B. PLAN DEVELOPMENT PROCESS In addition to providing sound public policy guidance, a Comprehensive Plan should incorporate an inclusive public participation process to ensure that its recommendations are reflective of a broadly supported future vision. An extensive process of citizen review and approval is critical to the planning process. This includes not only formal requirements outlined in §66.1001, but also more informal mechanisms such as public workshops and meetings. This planning effort reflects the dedicated commitment of the Plymouth Comprehensive Plan Committee, Plan Commission,

Plan Adoption or Amendment Process

Preparation of a “comprehensive plan” is authorized under § 66.1001, Wisconsin Statutes. Before adoption or amendment, a Plan must go through a formal public hearing and review process. The City Plan Commission adopts by resolution a public hearing draft of the Plan and recommends that the Common Council enact an ordinance adopting or amending the Plan as the City’s official comprehensive plan. Following Plan Commission approval, the Common Council holds a public hearing to discuss the proposed ordinance adopting or amending the Plan. Copies of the public hearing draft of the Plan may be forwarded to a list of local and state governments for review. A Class 1 notice must precede the public hearing at least 30 days before the hearing. The notice must include a summary of the Plan and information concerning where the entire document may be inspected or obtained. The Common Council may then adopt the ordinance approving the Plan as the City’s official comprehensive plan. This formal, well publicized process facilitates broad support of plan goals and recommendations. Consideration by both the Plan Commission and Common Council assures that both bodies understand and endorse the Plan’s recommendations.



Common Council, and City staff, and ongoing input from Plymouth citizens, community and special interest groups, the Comprehensive Plan Amendment Work Group, and representatives from neighboring jurisdictions. Due to the extensive public participation process in 2001, the recommendations of this Plan are generally consistent with other adopted local and regional plans, long-standing state and regional policies, and sound planning and development practices. C. GENERAL REGIONAL CONTEXT The City of Plymouth is located in Sheboygan County in eastern Wisconsin. Plymouth is located approximately 13 miles west of the City of Sheboygan, 23 miles east of Fond du Lac, 50 miles north of the Milwaukee Metropolitan Area and 70 miles south of the Green Bay Metro area. The City is situated near the north end of the Kettle Moraine State Forest and is surrounded by an extensive agricultural area. The City of Plymouth is surrounded by the Town of Plymouth—except for a small portion of the City’s industrial park on the southeast side that crosses over into Section 30 of the Town of Sheboygan Falls. The Town of Rhine is located to the north. The Town of Greenbush is located to the west, and the Town of Lyndon is located to the south. The Town of Lima is located to the southeast. Map 1 shows the relationship of Plymouth to neighboring communities in the region. D. SELECTION OF THE PLANNING AREA The study area for this Plan has been selected as to generally include all lands in which the City has both a short-term and long-term interest in planning and development activity. The Planning Area includes all lands currently within Plymouth’s corporate limits and within the City’s current 1½-mile Extraterritorial Jurisdiction Limit (ETJ). Within the ETJ, state statutes enable the City to plan, review subdivisions, enact extraterritorial zoning, and implement an Official Map. This Plan covers a planning period of approximately 20 to 25 years (running through the year 2035). During that time period, much of the land within the City’s ETJ will remain outside the corporate limits (i.e., not be annexed or attached). Therefore, the City has an interest in assuring that development activity within the entire ETJ area does not negatively affect the capacity for logical urban growth within and beyond the planning period. Map 1 depicts the Planning Area with a dashed red line. Since the City’s population is projected to top the 10,000 mark sometime around 2025 and the City will therefore be eligible to administer a 3-mile extraterritorial jurisdiction, the next update to this plan should consider expanding relevant maps and revising appropriate policies accordingly.

City of Plymouth Comprehensive Plan Chapter II: Background Information


II. BACKGROUND INFORMATION This section of the City of Plymouth Comprehensive Plan contains background information on the City and provides the basis for the overall objectives, policies, goals and programs to guide the future development and redevelopment of Plymouth over the next 20 to 25 years, as required by §66.1001, Wisconsin Statutes. A. AGRICULTURAL, NATURAL AND CULTURAL RESOURCES 1. AGRICULTURAL RESOURCES Dairy farms are the dominant use of agricultural land in the Planning Area. A significant portion of Plymouth’s local economy involves the manufacturing of products from the dairy industry. There are also large areas of productive agricultural soils in the Planning Area suitable for crop production. The predominant soil capability classes in the area are Class I and II. Because of the drumlin field topography, soil patterns are very dispersed and irregular. However, the importance of this resource to the community, and to the region, is widely recognized. An important goal of this Plan is to help preserve the extent and integrity of this resource as long as possible, while accommodating well planned, high-quality, compact urban development. This will mean gradual urbanization of some areas of good soils surrounding the current urban area – particularly in areas where sanitary sewer and public water can be provided at a reasonable cost. In other areas, where the cost-effective provision of urban services is not possible, long-term agricultural preservation is called for. 2. NATURAL RESOURCES The relationship between the City of Plymouth and its natural features provides a valuable point of reference. It sets up a framework for analysis, suggests possible locational advantages that the City may possess for certain land uses, and hints at the relationship between the City and the rest of the region. The natural resource base, especially environmentally sensitive areas with respect to soils, environmental corridors, wetlands, and floodplains are critical factors in local planning decision making. Maintenance of these features, and other environmentally sensitive natural features, is important for both the visual attractiveness of the community, as well as for the prevention of severe developmental or environmental problems that may be difficult and costly for the City to correct in the future. Landforms/Topography Landforms in and around the City of Plymouth are basically glacial drift features. The rolling topography of the Kettle Moraine provides a unique natural beauty to the Planning Area. The highest elevations, ranging between 900 feet to 1,020 feet above sea level, and areas with greatest physical relief in the Planning Area are located at the western edge of the City in the vicinity of West Summit Street and Western Avenue. Elevations on the east side of Plymouth (east of the Mullet River) generally fall in the 830 to 890 feet range. Along the Mullet River corridor, elevations drop from about 840 feet on the north side to about 810 feet on the south side of the City. Most of the natural drainage in Plymouth is oriented toward the Mullet River. General Soils Information Soil suitability is a key factor in determining the best and most cost-effective locations for new development. Problems that limit development on certain soils include slumping, poor drainage,

erosion, steep slopes and high water tables. As defined by the United States Department of Agriculture, the soils in the Planning Area are of two major types:

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Floodplains Flood hazard areas are located along the environmental corridors throughout the City. These have been identified and mapped by the Federal Emergency Management Agency (FEMA) for risk management purposes. The latest mapping was completed in 2009 and created significant changes in areas not previously mapped within the 100-year flood boundary. The 100-year floodplain—where the flooding probability is greater than 1% in any given year—is generally restricted to no development by State Statute-authorized local zoning. The local floodplain ordinance and map are available for examination and review at City Hall. Floodplains are included within environmental corridor boundaries, as depicted on the Maps in this Plan. However, refer to the maps produced by FEMA for official delineation and elevation of floodplain boundaries. Wetlands Wetland areas are located along streams and drainageways and in isolated low spots. These have been identified and mapped by the Wisconsin Department of Natural Resources. These areas are important for aquifer recharge, groundwater and surface water quality improvement, and wildlife habitat. Generally, development is restricted in these areas by State Statute-authorized local zoning. Wetlands are included within

environmental corridor boundaries, as depicted on all the Maps in this Plan. However, refer to the WisDNR Wisconsin Wetland Inventory maps for official delineation of wetland boundaries.

Woodlands The Planning Area contains several areas that have significant woodland cover. Most of these are located on the steepest slopes of the drumlins in the western part of the City, and along the Mullet River corridor in the central portion of the community. The most common species are oak, elm, and maple. The woodlands in and around the City are valuable contributors to the area’s character and beauty. Steep Slopes Generally, the Planning Area is pre- dominated by gently rolling or flat areas. Steep slopes (exceeding 12%) occur very infrequently and only for very short runs. These areas are scattered throughout the Planning Area and are generally associated with either directly adjacent waterways or drumlin systems.

Environmental Corridor Analysis Environmental corridors are a composite of the best elements of the natural resource base occurring in a linear pattern on the landscape. These corridor areas normally include one or more natural resource elements that are essential to the maintenance of an ecological balance and diversity, and the preservation of natural beauty and should be preserved and protected in essentially natural open uses. These corridors generally lie along the major stream valleys, around major lakes, and in the moraine areas of eastern Wisconsin. Almost all of the remaining high-value wetlands, woodlands, wildlife habitat areas, major bodies of surface water, and delineated floodlands and shorelands are contained within these corridors. Environmental corridor features include:

• surface waters and their undeveloped shorelands and floodlands • wetlands, woodlands and wildlife habitats • rugged terrain and high relief topography The corridors also contain the following additional elements, closely related to the natural resource base, having recreational, scenic, and historical value:

• existing outdoor recreation sites • potential outdoor recreation sites • historic, archaeological, and cultural sites • scenic areas and vistas • natural and scientific areas

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Building, Central House and Tavern and Laack Corner Drug Store. Historic home sites in Plymouth are located on the “Yankee Hill” area south of the central business district and the Mullet River. Most of these homes—built between 1860 and 1890—are located in the 400, 500, and 600 blocks of Collins Street. The following two properties in Plymouth are listed on the National Register of Historic Places: • Hotel Laack, 52 Stafford Street (c. 1892-93). Currently serving as a 19-room inn. • H.H. Huson House and Water Tower, 405 Collins Street (c. 1870, 1887). Currently serving as a 12-room bed and breakfast establishment. B. POPULATION TRENDS AND FORECASTS The City of Plymouth experienced a low to moderate increase in population growth during the 2000s. According to U.S. Census data, the City grew from 7,781 in 2000 to 8,445 residents in 2010, which represents an 8.5% increase (see Table 1). This growth increase compares to 14.8% for the City of Sheboygan Falls and -0.3% for the City of Sheboygan. The Town of Plymouth grew by 2.6% during the 2000s, the County and the State grew by 2.5% and 6%, respectively, during this time period. Historically, the City of Plymouth’s higher rate of growth in the 1990s was likely tied to the expansion of job opportunities in the community and the surrounding region. The slowing growth rate in the 2000s mirrored the substantial downturn in the overall economy.

Table 1: Population Trends

1990 2000 2010 Population

Change Percent Change

City of Plymouth 6,769 7,781 8,445 664 8.5% City of Sheboygan 49,587 50,792 49,288 -1,504 -0.3%

City of Sheboygan Falls 5,823 6,772 7,775 1,003 14.8%

Village of Kohler 1,817 1,926 2,120 194 10.1%

Town of Plymouth 2,911 3,115 3,195 80 2.6%

Sheboygan County 103,877 112,656 115,507 2,851 2.5%

Wisconsin 4,891,769 5,363,715 5,686,986 323,271 6.0%

Source: 1990, 2000 U.S. Census and 2010 U.S. Census Redistricting Data (Public Law 94-171) Summary File. Population projections for the City indicate that the community will continue to grow at a moderate rate over the next 20 years (Table 2). Many variables may affect the rate of growth, including the health of the regional economy, development and land use policies in surrounding communities, and national social trends. Plymouth’s growth during the 2000s easily exceeded projections made by state planning agencies. The Wisconsin Department of Administration’s population forecast (prepared in 1993) for Plymouth showed a population of 7,669 by 2010, less even than the census population of 7,781 in 2000. Because of the clear inaccuracy of the official state population forecasts, the City is not required to base its Comprehensive Plan recommendations on official state projections. Two alternative population projections show higher rates of growth in the community over the next two decades (see Table 2). These baseline projections are based on past and current population trends.



• The low-level growth rate assumes that Plymouth will continue to add the same number of people per year in the future as were added annually since 2000 and projects a population of 9,881 residents by the year 2030.

• The medium-level growth rate assumes the economy will rebound and Plymouth will grow at a

rate faster than what occurred during the 2000s. This alternative projection shows a population of 10,696 residents by the year 2030.

These alternative growth scenarios—depicting the City of Plymouth with about 10,000-11,000 residents by the year 2030—present a more reasonable basis for all subsequent recommendations contained in this Plan. For the purposes of this Plan, the second alternative population projection based on a mid-level growth rate will be used as the basis for planning.

Table 2: Population Projections

2015 2020 2025 2030

WisDOA^ 9,197 9,726 10,233 10,696

Low-level Growth Rate* 8,804 9,163 9,522 9,881

High-level Growth Rate` 9,590 10,289 10,944 11,511

^ MCD and Municipal Population Projections, 2005-2030 (2008) * UW-Extension Sheboygan County, based on a straight-line trend of 2000-2010 population growth (2011) ` UW-Extension Sheboygan County, based on a straight-line trend that assumes the WisDOA projection is a mid-level growth rate

1. DEMOGRAPHIC TRENDS AND FORECASTS Table 3 compares the age and sex distribution of Plymouth’s population in 2010 to surrounding communities and the State as a whole. General trends in age distribution is an important factor when considering the future demand for housing, schools, park and recreational facilities and the provision of social services. Following nationwide trends, the age of Plymouth’s population has grown somewhat older in the past 20 years. In 2010, the City of Plymouth had a median age of 40.8, compared to 33.9 in 1990. With prolonged life expectancy and a trend toward declining birth rates, the median age will likely continue to rise over the planning period. Nevertheless, Plymouth’s median age appears to be lower than surrounding communities and comparable to Sheboygan County. The percentage of Plymouth’s population aged 18 and under was higher than nearby communities and the County. The percentage of the City’s population that was aged 65 and older was about the same as nearby communities. The City also had a larger percentage of females than was typical.



Table 3: Demographic Characteristics

City of Plymouth

City of Sheboygan

Falls City of

Sheboygan Village of Elkhart Lake

Town of Plymouth

Sheboygan County

State of Wisconsin

Median Age 40.8 42.6 36.2 48.9 47.7 40.3 38.5

% under 18 24.2 22.3 25.3 15.8 22.8 23.9 23.6

% over 65 17.3 17.7 13.9 21.7 16.1 14.6 13.7

% female 52.4 52.0 50.5 49.6 49.6 49.8 50.4

Source: 2010 U.S. Census: Profile of General Population and Housing Characteristics

2. HOUSEHOLD SIZE TRENDS AND FORECASTS The average household size in Plymouth in 2010 was 2.26 (2.4 in 1990) persons per household. Historic census data for Plymouth indicates that the growth of housing development has outpaced population growth in the community over the past two decades. From 1990 to 2010, the total number of housing units in the City increased by about 43%, while total population increased by about 25% over this time period. This depicts a trend toward smaller household sizes. As shown in Table 4, the City of Plymouth had a smaller average household size than most surrounding communities. It is difficult to forecast future household sizes at the municipal level. However, at the county level, projections made by Woods & Poole Economics, Inc.—a regional economic and demographic analysis firm—show a gradual drop in average household sizes in Sheboygan County over the next 10 years. It is reasonable to assume that the City of Plymouth’s average household size will also decrease, although slightly, over the planning period. This Plan projects an average household size of 2.3 persons in the year 2020. The City has a larger percentage of single-person households (33.7%) and senior house-holders age 65 and over (28.8%) than all of the surrounding communities, County, and State.

Table 4: Household Characteristic Comparisons

City of Plymouth

City of Sheboygan

Falls City of

Sheboygan Town of

Plymouth Sheboygan

County State of

Wisconsin

Total Housing Units 4,039 3,681 22,339 1,229 50,766 2,624,358

Occupied Housing Units 3,710 3,480 20,308 1,152 46,390 2,279,768

Household Size 2.26 2.22 2.38 2.64 2.42 2.43

% Single-person household 33.7 33.0 33.4 14.5 27.9 28.2

% with householder age 65 and older 28.8 28.3 24.2 23.6 25.4 24.0

Source: 2010 U.S. Census: Profile of General Population and Housing Characteristics



C. EXISTING LAND USE An accurate depiction of the City’s existing land use pattern is the first step in planning for a desired future land use pattern. An inventory of existing land uses in the City of Plymouth was conducted in spring 2000 and updated in spring 2011. 1. LAND USE MAP CATEGORIES The City of Plymouth, and its Planning Area, is a diverse community. Historically, plans for the City were based on distinguishing between the type and intensity or density of development—but did not explore issues of community character. This new Comprehensive Plan is specifically designed to address issues of land use, development density and intensity, and community character on a more comprehensive basis. As such, this Plan uses an extensive system of land use categories. These categories include: a. Agriculture/Rural: agricultural uses, farmsteads, open lands and single-family residential development with densities at or below 1 dwelling per 35 acres;

b. Exurban Residential: single family residential development, generally at densities between 1 dwelling unit per acre and 1 dwelling unit per 35 acres;

c. Single Family Residential: sewered single-family residential development at densities up to 4 dwelling units per acre;

d. Two Family Residential: two-family and attached single-family residential development at densities up to 8 dwelling units per acre;

e. Mixed Residential: a variety of residential units at densities above 8 dwelling units per acre;

f. Planned Neighborhood: a carefully planned mixture of predominantly single-family residential development, combined with one or more of the following land use categories: two-family residential, mixed residential, neighborhood office, neighborhood commercial, institutional, and active recreation (this category is not shown in Existing Land Use Plan map, but see detailed description of the Planned Neighborhood concept in Part Three of this Plan). This category is also intended to accommodate Traditional Neighborhood Design (TDN) forms of development;

g. Neighborhood Office: residential, institutional office, office-support commercial and personal service uses which preserve the residential character through building scale, building appearance, landscaping and signage;

h. Neighborhood Business: residential, office, and neighborhood supporting institutional and commercial uses which preserve the residential character through building scale, building appearance, landscaping and signage;

i. Planned Business: high-quality indoor commercial, office and institutional land uses, with generous landscaping and limited signage;

j. Central Mixed Use: an historic pattern of pedestrian-oriented indoor commercial, office, institutional, residential and urban open space uses with streetscaping and low-key signage;

k. General Industrial: indoor industrial land uses and controlled outdoor storage areas, with moderate landscaping and signage;

l. Landfill: Sites either in current or previous use as a landfill;

m. Extraction: Quarries, gravel pits, clay extraction, peat extraction and related land uses;



n. Institutional: large-scale public buildings, hospitals, and special-care facilities. Small institutional uses may be permitted in other land use categories.

o. Active Recreation: Park and open space facilities devoted to playgrounds, play fields, play courts, trails, picnic areas, and related recreation activities;

p. Environmental Corridor/Passive Recreation: floodplains, wetlands, woodland and other sensitive environmental features;

q. Surface Water: lakes, rivers and perennial streams;

r. Rights-of-Way: areas reserved for transportation-oriented uses such as road and rail lines. 2. EXISTING LAND USE PATTERN The land use pattern in Plymouth has been primarily dictated by major transportation corridors and natural features; namely STH 67, the railroads, Mullet River, and the Kettle Moraine upland area. In general, the City of Plymouth has been expanding primarily to the east and southeast over the past two decades. Map 2 depicts the existing land use pattern (2010) within the Planning Area. Table 5 summarizes the acreage within the various land use categories in the City. The following is a summary of the development patterns depicted in this map. Residential Development The City of Plymouth is dominated by residential development (comprising approximately 31% of all land development in the community). Within the City, this development density averages about two to three homes per gross acre and is served by sanitary sewers and public water. Single Family Residential areas are located on both sides of the river. Older single-family neighborhoods surround the downtown area. One of the oldest is the area located directly south of the Mullet River and Collins Street—known as Yankee Hill and home to several stately residential buildings built prior to 1900. The southwest, southeast, and eastern portions of the community contain emerging residential areas. Most of the older neighborhoods in Plymouth reflect the “linear” design pattern (see Figure 1). This traditional grid pattern of rectangular blocks with individual lots fronting parallel streets is common in most Wisconsin settlements. The design was popular in the early years of community development because it efficiently accommodated sewer, water, utility, and street network extensions. As shown in Figure 1, Plymouth’s downtown business district and surrounding neighborhoods developed in this traditional grid pattern.

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Two-Family Residential development is mostly spread out around the periphery of the City, especially in the newer residential areas in the south and southeast sections of Plymouth. There is some two-family development integrated among single family homes throughout the community. Mixed Residential development, averaging about seven dwelling units per acre, is located on scattered sites throughout the City, particularly along Highland Avenue near the golf course, and along Pleasant View Road near commercial development on the City’s east side. During the 2000s, both the Two-Family and Mixed Use Residential acreages increased at substantially higher rates than did Single Family Residential; however, their percentage of overall land use was still small. Mobile Home residential development is located along STH 57 and the railroad tracks on the southeast side of Plymouth and along CTH C near the industrial park on the northwest side of the City. Commercial / Office Development There are 291 acres in Plymouth development for commercial use according to the land use inventory, an increase of 160% during the 2000s. The City’s Central Mixed Use area straddling Mill Street between Main Street and the Mullet River, otherwise known as the downtown area, contributes immensely to Plymouth’s character. Centrally located to most residential areas, this district has historically been the main commercial center for retail and commercial activities. The downtown continues to undergo a transition from the retail center of the community to an area of specialty shopping, services, offices and residential uses. Several vacancies persist in the street-level spaces. However, most of the second and third floors in the downtown buildings are being used for rental housing. General Business areas are scattered in parcels around the downtown area, and concentrated in a nearly continuous strip along Eastern Avenue and STH 57. Commercial development essentially extends eastward from Eastern Avenue and Bishop Avenue beyond the corporate limits to STH 57. There has been considerable development activity along this corridor in recent years. A few individual projects within this corridor have a Planned Business character as associated with more landscaping and modest signage. The most recent concentrated area of this use, however, is along the southwest corner of the STH 23 and STH 57 interchange, anchored by two health care facilities. General Office uses are generally located on parcels around the downtown area. There are a few Neighborhood Business uses interspersed in the City’s residential areas. Industrial Development There are three main areas of industrial development (which increased by 86% during the 2000s) within the City. There is a General Industrial area located in the northwest portion of Plymouth that accommodates the community’s largest employer, Sargento Foods. There is another older, General Industrial area located along the railroad corridor in the south-central part of the city. The largest tenant in this area is Mid-America Dairymen. Two newly developed Planned Industrial areas are located in the far southeast and southwest parts of the city, respectively. Other Land Uses Key Institutional Uses include the Plymouth High School campus on the City’s east side, the health care clinics southwest of the STH 23 and STH 57 interchange, and the Aurora Surgery Center in the central part of the community. The City also contains a very large number of churches, private schools, and municipal buildings. Key Active Recreation uses within the City include the Sheboygan County Fairgrounds along Fairview Drive, the nine-hole, par-3 Evergreen Golf Course along Highland Avenue, and the Quit Qui Oc Sports Complex on the far northeast side of Plymouth.



Table 5: Existing Land Use Totals

City of Plymouth City of Plymouth

Land Use Acres 2000 / 2011

Percent 2000 / 2011

Agriculture/Rural 492 272.3 18.0 8.6 Residential 891 997 32.6 31.4

Exurban Residential 0 0 Single Family 753 769 27.5 24.2

Two Family 33 54 1.2 1.7 Mixed Residential 78 141 2.9 4.4

Mobile Home 27 33 1.0 1.0 Office 19 30 0.7 0.9

Neighborhood Office 2 13 Planned/General Office 17 17

Commercial 112 291 4.1 9.2 Neighborhood Business 13 13

Planned Business 6 70 General Business 78 190

Central Mixed Use 15 18 Industrial 311 577 11.4 18.2

Planned Industrial 124 186 General Industrial 187 391

Landfill 0 0 0.0 0.0 Extraction 0 0 0.0 0.0 Institutional 258 316 9.4 9.9 Special Use 2 2 0.1 0.1 Active Recreation 114 226 4.2 7.1 Env. Corridor/Passive Rec. 115 46 4.2 1.4 Surface Water 50 50 1.8 1.6 Existing Right of way 372 370 13.6 11.6 TOTAL 2,736 3,177.3 100 100

Sources: GIS Inventory, VANDEWALLE & ASSOCIATES, 2000 and Sheboygan County Data, 2011 3. LAND DEVELOPMENT TRENDS From 2001 to 2010, 475 acres of land were annexed into the City of Plymouth. Table 6 shows the amount of acres annexed into the City by year and by zoning type. Most of the property that was annexed into the City in the 2000s is located in the southeast and northeast corners of the City. During the 2007 to 2010 period, less than 20 acres total were annexed into the City. According to the Sheboygan County Register of Deeds, there were 3 vacant residential lots transferred in the City of Plymouth in 2010. The average price for a vacant residential lot in the City was $40,333.



Table 6: Land Annexed into City of Plymouth: 2001 - 2010

Zoned Use 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 Residential (R-1, R-2, R-3, R-3A, R-4, RMH)

12.0 1.0 0 1.1 52.2 7.1 8.6 0 0 0

Commercial (B-1, B-2, B-3, CB) 5.3 0 0 0 45.4 0 0 0 0 0

Industrial (LI, HI) 98.0 0 0 0 0 25.6 28.1 0 0 0

Conservancy (C) 0 0 0 0 0 0 0 0 0 0

Agricultural 51.9 7.4 0 0 29.0 82.9 0.3 0 0.2 19.0

Total Acres Annexed

167.2

8.4 0 1.1 126.6 115.6 37.0

0 0.2 19.0

Source: City of Plymouth 4. EXISTING LAND USE CONFLICTS Existing land use conflicts in the community include areas along the railroad corridors in the central part of Plymouth where long-standing industrial land uses directly abut single-family uses. This historical pattern of abutting land uses has been in place for decades, and residents in these neighborhoods have both acknowledged and accommodated this conflict. The City has worked to establish bufferyards and other mitigating improvements in these areas on a case-by-case basis as redevelopment occurs to prohibit nuisances and avoid public safety problems. Specific areas of land use conflict include residential development backing up to Mid-America Dairymen (formerly Borden’s) on South Street and residential homes across the street from the former Gilson plant on Schwartz Street in the west side of Plymouth. The county fairgrounds/race track area generates some temporary traffic and noise issues for nearby residents. Potential land use conflicts might arise in the future as residential development follows CTH PP eastward toward existing industrial development on the city’s southeast side. This Plan seeks to minimize these types of potential conflicts through thoughtful planning and implementation.

D. TRANSPORTATION NETWORK 1. ROADWAYS Access is a key determinant of growth because it facilitates the flow of goods and people to the community. Plymouth is well connected to the region. State Trunk Highway (STH) 23 connects Plymouth with Interstate 43 and the City of Sheboygan to the east and USH 151 and the City of Fond du Lac to the west. STH 57 connects Plymouth to the Green Bay area to the north and the Milwaukee metropolitan area to the south. The 25-mile Kettle Moraine Scenic Drive runs west of Plymouth and attracts many tourists into the community during the summer and fall seasons.



Map 3 is the most current functional classification system map for the City of Plymouth based on 2011 data from the Wisconsin Department of Transportation. The functional classification system groups roads and highways according to the character of service they offer, ranging from rapid through access to local land access. The purpose of functional classification is to enhance overall travel efficiency and accommodate traffic patterns and land uses by designing streets to the standards suggested by their functional class. The three main functional classes are arterials (providing primary access to and through an area), collectors (dispersing traffic within an area), and local streets (providing access to individual properties). An updated functional classification system for the City is provided in Part Three of this Plan.

Table 7: Average Daily Traffic Volumes, 1999-2008

Zoned Use 1999 2002 2005 2008 % Change 2005-2008

CTH C / Eastern Avenue

West of STH 57

East of Highland Ave.

East of Fairview Dr.

10,400

13,700

13,500

11,200

12,600

12,800

11,900

11,400

11,300

11,9001

12,700

12,100

--

11.4%

7.1%

CTH E / Highland Avenue

North of Eastern Ave.

South of Eastern Ave.

3,100

3,000

3,200

3,100

3,200

3,100

3,0002

3,700

--

19.4%

CTH PP / Hill & Dale Road

East of STH 67

3,800

4,100

4,100

4,400

7.3%

STH 67 / Milwaukee Street

South of River Bend Rd.

Between Mill & Main St.

North of Suhrke Rd.

3,600

7,000

5,300

4,000

7,100

5,600

3,700

6,400

5,200

4,400

6,100

5,400

18.9%

-4.7%

3.8%

Western Avenue

West of CTH C

2,100

2,100

1,900

1,8002

--

Source: Wisconsin Department of Transportation. 1 is 2005 count; 2 is 2007 count.

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development. For example, the local Chamber of Commerce and Historical Society publicize a self- guided walking tour of Plymouth’s most noteworthy buildings in and around the downtown area. Portions of the City are well served by sidewalks, although significant gaps in the network exist. Planned growth and development should accommodate, or at least not impede, safe bicycle and pedestrian travel as an integral part of the community’s growth. Currently, the City has several designated on-street bike routes and/or bike lanes. According to national standards, bike routes should be designated along streets that provide a direct route to a useful destination, have traffic volumes less than 2,000 cars per day, and have speed limits of 30 MPH or less. Bike routes on streets that do not meet these standards should have wider travel lanes and/or designated bike lanes to safely accommodate bike traffic. Plymouth has good access to off-road, multipurpose recreational trails. The City serves as one of four trailheads for Sheboygan County’s “Old Plank Road Trail”—a 17-mile multipurpose trail that parallels STH 23 and links the Lake Michigan waterfront in Sheboygan to the Village of Greenbush and the Ice Age National Scenic Trail. The Old Plank Road Trail accommodates bicyclists, runners, walkers, in-line skaters, horseback riders, cross-country skiers, and snowmobilers. Within Plymouth, the City’s “Recreation Trail” begins at Sunset Drive (off of the Old Plank Road Trail) in the northwest part of the City and travels southeast through the community before ending at H.M Meyer’s Nature Park (see Map 5b for the complete trail route). The City’s 2009 Outdoor Recreation Plan shows this trail continuing west from the Nature Park and eventually encircling the City—linking most of the community’s parkland—and reconnecting to the Old Plank Road trailhead facility near the intersection of STH 23 and CTH C on the City’s east side. 5. INTER- AND INTRA-CITY TRANSPORTATION Inter-city bus service (e.g., Greyhound Bus Company) was discontinued in Plymouth in the early 1990s. The nearest community providing Greyhound bus service is the City of Sheboygan. Also, limited private taxi service is available for Plymouth area residents. Public transportation in Wisconsin communities is usually in the form of bus service. Transit bus service has fixed routes and schedules. In order to operate efficiently, a transit bus system needs to serve a certain population size and demographic make-up. These two thresholds are not currently met in Plymouth, with its dispersed and small population size. Para-transit is a specialized transit service to specific segments of the population that require more accessible vehicles and flexible routing. Para-transit service for elderly and disabled Plymouth residents is available through the Sheboygan County Elderly and Disabled Transportation Program, provided by the Regional Transit Connection (RTC). Most of the passengers in Plymouth are elderly residents needing rides between their home and the Plymouth Adult Community Center / Generations Building. 6. ELECTRIC PERSONAL ASSISTIVE MOBILITY DEVICES (EPAMD) As of 2004, there were approximately 160,000 people in the U.S. who used electric powered wheelchairs or scooters. As baby boomers become senior citizens and mobility becomes a concern for this large population, the use of these aids is expected to rise. Most wheelchairs are designed for use on sidewalks, driveways, and hard, even surfaces. Newer designs are more similar to scooters than to the traditional design of the wheelchair. The impetus for this new design has been people’s



desire for more independence and mobility, to the point of being able to mount curbs and travel over rough ground. Because of safety concerns, some communities have begun regulating EPAMDs by requiring reflectors and a headlamp during non-daylight hours, not allowing them on roads with speed limits higher than 25 mph, or restricting them to sidewalks and bike paths. Due to a lack of individuals owning such devices, regulations in the City of Plymouth have been unnecessary thus far. 7. REVIEW OF STATE AND REGIONAL TRANSPORTATION PLANS The City of Plymouth is not located in the Metropolitan Planning Organization (MPO) for the Sheboygan Metropolitan Area. The following is a review of state and regional transportation plans and studies relevant to the Plymouth planning area: Sheboygan County Pedestrian/Bicycle Comprehensive Plan 2035 was adopted by the County in 2007. The purpose of the Plan is to identify and recommend programs and actions that guide and encourage the development of pedestrian and bicycle facilities and ultimately increase both walking and bicycling as viable modes of transportation throughout the County. Eight major goals are included, and none of the City’s objectives, policies, goals, or programs intentionally conflict with the County goals. Specific non-motorized recommendations of the County Plan for the City of Plymouth include a number of short-term facility objectives, such as sidewalks, paved shoulders, and bicycle lanes in various corridors, as well as long-term facilities such as off-road trail segments. A Plan for the Old Plank Road Trail (1991) was prepared by the Sheboygan County Planning and Resource Department. This Plan serves to guide the development of the 17-mile multi-purpose trail that passes on the north side of Plymouth. Most of the Plan’s recommendations specific to the Plymouth planning area have been implemented, including the construction of a trailhead facility near STH 23 and CTH C in 1993. Wisconsin Bicycle Transportation Plan 2020 (1998) presents a blueprint for improving conditions for bicycling, clarifies the Wisconsin Department of Transportation’s role in bicycle transportation, and establishes policies for further integrating bicycling into the current transportation system. The Plan reports that, according to a University of Wisconsin survey conducted in August of 1998, more than one-third of all Wisconsin households included someone who took at least one bike trip in the previous week. The Plan map shows existing state trails (including the Old Plank Road State Trail) and future “priority corridors and key linkages” for bicycling along the State Trunk Highway system in Wisconsin. There are no future “priority corridors” or “key linkages” mapped anywhere in Sheboygan County. Wisconsin Rail Issues and Opportunities report was recently completed in lieu of an update to the State Rail Plan. This report highlights key rail issues, but it defers specific recommendations until the Connections 2030 plan is completed.



E. UTILITY AND COMMUNITY FACILITIES Public utilities and community facilities comprise the essential framework for servicing the Plymouth community. This section describes Plymouth’s utility and community facilities—water, sewer, municipal buildings, library, police and fire services, health care facilities, schools, and parks and recreation facilities. The City’s goals, objectives and policies to guide future development of these facilities are presented in Part Two of this Plan. 1. SEWER AND WATER SERVICE

The City of Plymouth collects and treats wastewater from the City and from areas outside of the City that include the former Town of Plymouth Sanitary District, the Rocky Knoll Health Care Center, and the Little Elkhart Lake Rehabilitation District. The sewage collection system consists of four lift stations and 53 miles of sanitary sewers ranging in diameter from 4-inch to 36-inch. For 2010, the maximum day was 3.847 million gallons per day (MDG); the average day was 1.735 MGD; and the minimum day was 1.100 MGD. The City’s1996 East Side Sanitary Sewer Study provided recommendations for expansions of interceptor sewers and general alignment of the collection system in the area generally east of CTH E to Willow Road and between STH 23 and CTH PP. The City’s desire to expand its utilities into this area is reflected in the various project plans and amendments for Tax Incremental Financing (TIF) District No. 2, 3 and 4. The City’s wastewater treatment plant began operations at its current location in 1978 and has since undergone a major upgrade that was completed in 1994. The facility is located at 625 CTH PP on the City’s south side and treats wastewater through an activated sludge process that has an average rated capacity design of 1.800 MDG for hydraulic, 6,400 lb./day for organic (BOD), 3,650 lb./day for suspended solids; 193 lb./day for phosphorus, and 181 lb./day for ammonia nitrogen. For 2010, the average-day loadings were 1.735 MDG for hydraulic, 3,455 lb./day for organic (BOD), 2,499 lb./day for suspended solids, 74 lb./day for phosphorus, and 200 lb./day for ammonia nitrogen. Modifications made during the 1990s provide the city with sufficient treatment capacity to continue to meet short-term growth needs. However, over the long term, the City should update it 1991 Wastewater Treatment Facilities Plan over the planning period to identify any needed major improvements. The City’s water utility provides water from six groundwater wells. Total reliable capacity of these wells is 1,585 GPM (2.282 MGD). For 2010, the maximum day was 2.164 MGD; the average day was 1.202 MDG; and the minimum day was 0.735 MGD. The water is treated at each well with hydrofluosilicic acid for fluoridation, orthophosphate for corrosion control, and sodium hypochlorite solution as a disinfectant to protect against microbial contaminants. Water is pumped through 62 miles of mains ranging in diameter from 4-inch to 24-inch. The system has two elevated ground storage tanks for a combined capacity of 1.1 million gallons of water. The City’s 1996 Comprehensive Water Study for Plymouth Utilities provided recommendations for another well, additional storage, and enlarging and looping the water mains across the system. The City’s desire to follow the study’s recommendations is incorporated in the various project plans for TIF District Nos. 4, 5 and 6. According to the 1992 Space Facilities Study for Plymouth Utilities, the existing departmental building space on Milwaukee Street is insufficient to meet short and long-term needs. The building is also in violation of several provisions of the Americans with Disabilities Act. The utility’s garage and shop on Reed Street was also found to be inadequate. The study recommends consolidating the two facilities into one facility to be located in an industrial area. As a result, a new 50,477 gross square- foot facility for the location of the Plymouth Utilities Operations Center will be constructed in 2011- 2012 on the south side of the City at the intersection of South Street and CTH PP.

City of Plym

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Plymouth Adult Community Center

The Plymouth Adult Community Center is housed in Generations (Plymouth Intergenerational Center), at 1500 Douglas Drive off CTH E. This is a new facility, which is also home to The Family Resource Center of Sheboygan County, Head Start, Growing Generations (Here We Grow Child Care Center) and Parents Plus of Wisconsin. Basic Funding for the Center comes from the City of Plymouth. The building has an industrial kitchen and a community meeting area. A number of recreational and educational activities, as well as health programs, are offered throughout the year for elder adults. The Adult Community Center also hosts a meal program operated by the Sheboygan County Human Services Department, Division on Aging. Transportation is provided by the Regional Transit Connection (RTC), a division of Shoreline Metro (formerly Sheboygan Transit). Health Care Facilities

Formerly known as Aurora Valley View, Aurora Surgery Center at 901 Reed Street in Plymouth fully renovated its facility in 2010, adding state-of-the art technology and equipment to perform outpatient surgery, creating a larger GI lab with high definition video equipment, and adding a new Sleep Disorders Center. Private rooms have been added to allow more privacy and comfort for patients recovering from outpatient procedures. Outpatient surgery services are performed by Aurora Sheboygan Clinic surgeons and anesthesia and surgical nursing staff shared between Aurora Surgery Center and Aurora Sheboygan Memorial Medical Center. Free Transportation to the Surgery Center is available for patients who live within a 30-mile radius of Plymouth. The Aurora Health Center (Urgent care), opened in 2007 at 2600 Kiley Way, includes a clinic, Vision Center, behavioral health center, and a rehabilitation center. Expanded primary and specialty care services are offered in the 88,000-square-foot health center. Prevea Plymouth Health Center at 825 Walton Drive offers an urgent care clinic and the offices of two family practitioners. It is in the process of adding more staff and services. 3. SCHOOLS Plymouth is served by a public school system as well as several parochial schools. There are five public schools in the Plymouth School District. Total enrollment in the district’s public schools was about 2,400 students in 2011. The average student-to-teacher ratio in the district is 13 to 1. The following five public schools are located within the City limits: Fairview Elementary Built in 1956, this elementary school is located east of the Fairgrounds. The facility accommodates grades K-5 and has an enrollment of around 240 students. Parkview Elementary This elementary school, built in 1956, is located adjacent to Loebe Field on the northwest side of the City. The facility accommodates grades K-5 and has an enrollment of around 320 students. Horizon Elementary Plymouth’s newest elementary school is located next to the high school in the eastern portion of the City. The school serves grades K-5 and has about 270 enrolled students. Riverview Middle School The Middle School is located in the north central portion of the community. It was built in 1933, with a major renovation and school addition completed in 1976. The school accommodates an enrollment of around 570 students.



Plymouth High School The High School is located in the eastern portion of the community on Highland Avenue. The school facility was constructed on an 80-acre site in 1966, and presently shares the southern part of the campus with the Horizon Elementary School. The Plymouth High School (grades 9-12) was designed to serve 1,200 students. Presently, high school enrollment is around 800 students. In addition to these schools located within the City, two elementary schools in the district (Cascade and Parnell) have been closed in the last few years and the students bused to schools within the City. The Catholic parish and a Lutheran church operate K-8 schools, and the Baptist church operates a K-12 school. 4. Parks and Recreation Facilities

As of 2011, the City of Plymouth had nearly 322 acres of parks and open space, encompassing about 10% of the City’s total land area. The City’s percentage of land area devoted to park and open space is comparable to surrounding communities. Recreational standards call for approximately 12 acres of parkland for every 1,000 residents. The City’s current acreage far exceeds this standard. The following is a brief description of the City-owned parks in the system: • Anton Park: A 2-acre park located along Eastern Avenue with access to the Plymouth Millpond. The park contains picnic facilities, a fishing pier, the Veteran’s Memorial Trail, and a small shared parking lot. • Bade Park: This 0.10-acre park is located along the Mullet River off South Milwaukee Street. • Bishop Avenue Park: A ¼-acre park located at the end of Bishop Avenue in the northeast portion of the community, containing playground equipment and a picnic area.

• Carl Loebe Field: This 4½-acre active recreation facility with a lighted baseball diamond, concession stand, bleachers, and restrooms is located between Western Avenue and Sunset Drive on the northwest part of Plymouth. The site serves as home field for the Plymouth Flames, an adult baseball team that plays baseball against other communities in the area. The group requests money from the Park Board to help offset the costs.

• City Park: This 18-acre park is the city’s largest and most developed park in the system. Located on Grove Street in the northeast portion of the Plymouth, facilities include a lighted softball diamond, concessions stand, restrooms, tennis courts, basketball court, volleyball court, outdoor aquatic center with zero entry pool and slides, playground equipment, skate park, picnic shelters, lighted winter sled hill, parking lot and a band shell. This park serves as an important gathering place for the community, especially in the summer months when local and guest bands play in the band shell every Thursday evening.

• Evergreen Golf Course: A 30-acre 9-hole par 3 course with a driving range and practice putting green and club house. Golf clubs, and pull and power cart rentals are available.

• Henry H. Huson Park: A 2½-acre park located on Collins Street in the central portion of the community. This passive recreation facility has bench seating along the Recreation Trail, which follows the Mullet River. A footbridge crosses over to the downtown area.

• Kensington’s Evergreen Park: A small neighborhood park located on the west end of Kensington Avenue just west of Plaza Lane. This park includes a playground and seating area.

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5. Sheboygan County Fairgrounds The Sheboygan County Fairgrounds is located in the northeast portion of Plymouth. This 56-acre site includes a one-half mile dirt racing track, numerous exhibition buildings, concession stands, restrooms, and parking areas. The fairgrounds are used primarily for the summer county fair, auto racing, snowmobile racing in the winter, and other special events. F. HOUSING FRAMEWORK A community’s housing stock is its largest long-term capital asset. As is typical in most communities, residential development is the largest land user in Plymouth (a little over 30% of the city’s total land area). Housing not only provides shelter, but also serves to identify neighborhoods and a community’s sense of place. This section describes the City’s predominate housing stock characteristics and available housing programs. A compilation of goals, objectives, and policies to provide an adequate housing supply is presented in Part Two of this Plan. 1. HOUSING STOCK CHARACTERISTICS In 2000, there were 3,406 housing units in the City. The housing stock was predominately single family detached homes (59.8% in City—see Table 8). Based on issued dwelling permit data presented in Table 8, there are an estimated 3,758 housing units in 2010. Single family dwelling units remain the predominate type of housing in Plymouth. The mix of different housing types stayed about the same during the 2000s.

Table 8: Housing Types, City of Plymouth: 2000, 2010 Units per Structure 2000 Units 2000 Percent 2010 Units 2010 Percent Single Family 2,036 59.8 2,240 59.6

Two Family (Duplex) 487 14.3 575 15.3

Multi-Family 728 21.4 788 21.0

Mobile Home 155 4.6 155 4.1

Source: 2000 U.S. Census: H30 - Units in Structure, SF 3; 2010 estimates based on issued dwelling permit data in the City. Table 9 shows housing construction trends in the City over the past decade. After substantial activity early in the decade, the amount of multi-family development dropped off considerably in the latter half of the 2000s.

Table 9: Housing Development, City of Plymouth: 2000-2010

Unit Type 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 2010 Single Family 16 17 20 27 49 42 15 18 5 7 4

Duplex Units 38 12 24 14 4 4 12 8 8 2 0

Multi-Family Units 56 44 0 0 0 0 0 0 16 0 0

Total Units 110 73 44 41 53 46 27 26 29 9 4

Source: City of Plymouth Building Inspection Department



Table 10 compares other housing supply characteristics for the City of Plymouth with surrounding communities and the County. In 2010, the City had an average vacancy rate of 8.1% (3.8% in

2000). The percent of owner-occupied housing units in Plymouth (62.8%) (61.4% in 2000) is comparable to surrounding incorporated communities, but notably lower than the Town of Plymouth. The City’s median housing value in 2000 ($110,200) ($61,100 in 1990) was comparable to other cities and villages in the area, but lower than the surrounding Town of Plymouth, where larger homes prevail. The median rent for rental housing in the City ($438 in 2000) was comparable to surrounding communities.

More recent data on local home values and sale prices is available from the Sheboygan County Register of Deeds Office. The median sale price in 2010 for a home in the City of Plymouth was $154,155. For comparison, the median sale price for a home in the Town of Plymouth was $217,550. According to the Wisconsin Realtors Association, the median quarterly home sales price in 2008 in Sheboygan County overall was $131,325.

Table 10: Housing Stock Characteristics

City of

Plymouth City of

Sheboygan Falls

City of Sheboygan

Village of Elkhart Lake

Town of Plymouth

Sheboygan County

Total Housing Units 4,039 3,681 22,339 706 1,229 50,766

% Vacant 8.1 5.5 9.1 35.3 6.3 8.6

% Owner Occupied 62.8 68.1 61.2 76.4 92.5 71.7

Median Housing Value * $110,200 $111,600 $89,400 $118,400 $150,100 $106,800

Median Contract Rent * $438 $422 $412 $531 $445 $418

Source: 2010 U.S. Census: Profile of General Population and Housing Characteristics * 2000 U.S. Census

2. HOUSING CONDITION

Table 11 illustrates the age of Plymouth’s housing stock based on the 2000 census data and more recent building permit data. The age of a community’s housing stock is sometimes used as a measure of the general condition of the community’s housing supply. Plymouth has a relatively older

housing stock. Over one-quarter of the City’s homes were built before 1940. Another quarter of the City’s housing supply was built between 1940 and 1970. Over the planning period, owners of these older homes will likely be interested in rehabilitation efforts.



Table 11: Age of Plymouth Housing as a Percent of the Total 2009 Housing Stock

3. HOUSING PROGRAMS

It is important that a community provide a range of housing choices that meet the needs of persons of all income levels and age groups and persons with special needs. This subsection identifies specific programs in Plymouth that promote housing development.

According to the Wisconsin Housing and Economic Development Authority (WHEDA), there were

164 federally subsidized low-income housing units (96 family units and 68 elderly units) in the City of Plymouth as of 2011. Several of these units are owned and operated by the Plymouth Public Housing Authority.

Housing programs available to Plymouth residents include home mortgage and improvement loans from WHEDA and home repair grants for the elderly from the U.S. Department of Agriculture. Other programs include Community Development Block Grant (CDBG) funds, which are available for housing revitalization efforts in Plymouth. The Home Investment Partnerships Program (HOME) funds down payment assistance for home buyers, rental rehabilitation, weatherization related repairs, accessibility improvements, and rental housing development. The Housing Cost Reduction Initiative (HCRI) funds activities such as emergency rental aid, homeless prevention efforts, and related housing initiatives. Further information on these programs can be obtained by contacting WHEDA.

0 5 10 15 20 25 30

1939 or earlier

1940 to 1949

1950 to 1959

1960 to 1969

1970 to 1979

1980 to 1989

1990 to 1999

2000 to 2009

Percentage



G. ECONOMIC DEVELOPMENT FRAMEWORK The economic condition of a community, particularly the composition of its economic base, closely relates to its potential for economic expansion or improvement. This section describes the City’s economic conditions. Goals, objectives, and policies to promote the retention or expansion of the community’s economic base and quality of employment opportunities are presented in Part Two of this Plan. 1. LABOR FORCE TRENDS AND FORECASTS Selected economic and labor force trends for the City of Plymouth generally reflect those of the nearby cities, the County, and the State (see Table 12). The City’s labor force is the portion of the population that is employed or available for work. The labor force includes people who are in the armed forces, employed, unemployed, or actively seeking employment. According to 2000 Census data, the City’s labor force consisted of 6,114 persons who were 16 years of age or older. Of the City’s labor force, 4,198 persons were employed. There were 52 people in the labor force who were unemployed (a 1.2% unemployment rate). More current labor force data is available at the county level. The 2010 unemployment rate for Sheboygan County was 11.0% (annual, not seasonally adjusted), a substantial increase from the 2.5% rate seen near the beginning of the decade. The median household income in Plymouth in 2000 was $42,103, which is comparable to the County and State but much less than reported for the Town of Plymouth ($61,038). The 2000 Census shows 2.6% of the City’s population living below the poverty level, compared to 3.7% for Sheboygan County, and 5.6% for the State. The City’s unemployment rate in 2000 (1.2%) was less than nearby cities, the County, and the State.

Table 12: Economic and Labor Force Characteristics City of

Plymouth Town of

Plymouth City of

Sheboygan City of

Sheboygan Falls

Sheboygan County

State of Wisconsin

Median Household Income $42,103 $61,038 $40,036 $47,205 $46,237 $43,791

Per Capita Income $22,260 $25,275 $19,270 $22,456 $21,509 $21,271

% Below Poverty 2.6 1.0 6.2 2.6 3.7 5.6

% High School Graduate or higher* 85.7 86.2 81.2 87.1 84.4 85.1

% Bachelor’s Degree or higher* 19.4 21.5 15.9 15.0 17.9 22.4

% in Employed Labor Force^ 68.7 71.3 65.6 69.4 67.9 65.8

Total % of Persons Unemployed in 2000 1.2 0.4 3.8 2.1 2.6 4.9

Total % of Persons Unemployed in 2010 unavailable unavailable 11.0 unavailable 8.7 8.3

* Persons 25 years of age and over ^ Persons 16 years and over Source: 2000 U.S. Census, DP-2 Profile of Selected Social Characteristics, and DP-3 Profile of Selected Economic Characteristics. Unemployment data for 2010 (annual; not seasonally adjusted), Wisconsin Department of Workforce Development



According to 2000 statistics, about 86% (77% in 1990) of the City’s population age 25 and older had attained a high school level education. Approximately 19% (13% in 1990) of this same population had attained a college level education (bachelor’s degree or higher). It is difficult to forecast future employment figures for a small area such as Plymouth. However, at the regional level, the Wisconsin Department of Workforce Development projects an increase in total employment in the Bay Area Workforce Development Area, which includes Sheboygan County, of 2.1% by 2018. Jobs in “Education and Health Services”and “Hospitals” are projected to experience the highest growth in the region during this period, while the largest declines are expected in “Manufacturing” and “Fabricated Metal Product Manufacturing.” 2. ECONOMIC BASE Manufacturing; Health/Educational/Social Services; and Retail/Wholesale Trade were the largest employment sectors in the City of Plymouth according to 2000 Census data (see list below). The dairy and cheese industry (grouped under “Manufacturing”) remains the cornerstone of the local economy. Major employers in Plymouth classified within this food processing category include Sargento Foods, Inc.; Mid-American Dairymen (formerly Borden’s); Great Lakes Cheese of Wisconsin, Inc.; Masters Gallery Foods, Inc.; and Sartori Foods Corporation. Other major employers in the City include the Plymouth School District; Aurora Surgery Center; Plymouth Foam Products; and Wal-Mart. According to the 2000 Census, the labor force in the City of Plymouth was broken out as follows:

Industry Group Share of Plymouth Labor Force Manufacturing 36.9% Health/Educational/Social Services 18.6% Retail/Wholesale Trade 13.4% Arts/Entertainment/Recreation 6.1% Construction 5.8% Professional Services 5.5% Finance/Insurance/Real Estate 3.5% Transportation/Communication 3.3% Other Services 2.7% Public Administration 2.0% Ag./Forestry/Fishing/Mining 1.2% Information 0.9%

Source: 2000 U.S. Census, DP-3 Profile of Selected Economic Characteristics

Attention should continue to be given to attempts to retain and diversify the service and employment base of the area, and to generally focus economic development efforts on small- and mid-sized companies and sites. Income statistics in Table 12 suggest that the City would benefit from additional good paying jobs. 3. ENVIRONMENTALLY CONTAMINATED SITES New state statutes require a Comprehensive Plan to evaluate and promote environmentally contaminated sites for commercial and industrial uses in the community. The Wisconsin DNR’s Environmental Remediation Program maintains a list of sites, or brownfields, in the state. The DNR defines brownfields as “abandoned or under-utilized commercial or industrial properties where



expansion or redevelopment is hindered by real or perceived contamination.” Examples of brownfields can be anything from a large abandoned industrial site to a small corner gas station. Properties listed in the DNR program are self-reported, and do not represent a comprehensive listing of possible brownfields in a community. A more detailed listing of contaminated sites is available through state and federal databases. As of May 2011, there were four “Open” contaminated sites within the city limits of Plymouth listed in the DNR’s Bureau for Remediation and Redevelopment Tracking System. There were at least 40 “Closed” sites listed as well. In general, most of these sites are older industrial properties located along railroad corridors in the central portions of the community. Specific location and property ownership information is available from the DNR. These properties will need special attention as redevelopment occurs. This list of environmentally contaminated sites was considered when making the land use recommendations in this Plan. 4. ECONOMIC DEVELOPMENT PROGRAMS The City has a number of economic development tools. The City recognizes the importance of its abundant community facilities (e.g., parks, community centers) as an economic development and “quality of life” asset and continues to provide funding into the development and maintenance of these facilities. In 2010, the City established the Downtown Revitalization Committee to work on redeveloping and beautifying the downtown area. The Downtown Business Association, Plymouth Chamber of Commerce, and other City committees promote downtown redevelopment efforts. The Plymouth Chamber of Commerce and Sheboygan County Economic Development Corporation (SCEDC) also work to promote business retention and development throughout the entire community. The Plymouth Industrial Development Corporation (PIDC) also continues to promote quality industrial and commercial development. The City uses Tax Increment Financing (TIF) districts to create incentives for industrial and mixed use development. TIF provides for up-front public expenditures for land and infrastructure for industrial and mixed use development. The resulting development pays for such initial expenditures over time through dedicated property tax revenues. The City has three active TIF districts including TIF District Number 4, TIF District Number 5, and TIF District Number 6 (single-parcel district for Sargento Foods). (See maps in Appendix C.) At the regional level, the Bay-Lake Regional Planning Commission (BLRPC) assesses economic development activities and proposes strategies for development action. The 2009 Comprehensive Economic Development Strategy reports that the eight-county region lost 346 jobs in the 2006-2008 period, with three counties gaining jobs and five counties losing jobs. Sheboygan County experienced the highest percentage of losses at 1.2% of employed persons (770 jobs). Wisconsin overall lost 5,489 jobs, a decline of 0.2%. City’s Desired Economic Development Focus The Wisconsin comprehensive planning statute requires that the Comprehensive Plan “assess categories or particular types of new businesses and industries that are desired by the local government unit.” According to interviews with local economic development groups conducted as part of the planning process, retention and expansion of existing businesses should be the primary focus. There was also an expressed desire to keep downtown Plymouth a vital component of the community. Specifically, there is a desire to increase the amount of small office space in the community, a family-style restaurant in the downtown area, and more tourism-related development such as bed-and-breakfast establishments and specialty shops.



City Strengths and Weaknesses The comprehensive planning law also requires an assessment of community strengths and weaknesses for economic development. Plymouth has several strengths and weaknesses which affect its ability to attract the types of businesses and industries it desires. The list included as Table 13 are based on the results of interviews with local businesses and economic development groups, and the community forum that was conducted as part of this original planning process.

Table 13: Plymouth’s Economic Strengths and Weaknesses

STRENGTHS WEAKNESSES

Proximity to growing Sheboygan Metropolitan Area Declining commercial activity in the downtown area

Natural setting Difficulty in retaining younger workers

Site availability along Highway 23 Wage competition from other areas

Labor force availability Few partnerships between businesses and educational institutions

Quality schools and community facilities TIF districts have reached their statutory limit as of 2011

The City Industrial Development Commission currently owns and has for sale 78 acres of industrial

land served with both sewer and water, and road access, with another 60 acres adjacent to this property

that could be developed without a significant cost.

Source: Results of interviews with local businesses and economic development groups, and the community forum that was conducted as part of the 2001 comprehensive planning process. This is a plan for the City of Plymouth. As an incorporated jurisdiction anticipating population growth, this is a Plan that must accommodate, and indeed facilitate, planned municipal expansion. However, this Plan attempts to coordinate recommendations with those of adjacent and overlapping jurisdictions. These jurisdictions include: the State of Wisconsin; Sheboygan County; the Towns of Plymouth and Sheboygan Falls; and other jurisdictions such as school districts and sanitary sewer districts. As a result of growth and territorial overlaps, tension between these jurisdictions is likely. This Plan seeks to minimize such tension by reflecting the recommendations of plans adopted by these jurisdictions in instances where the City’s interest (as defined by the policy framework presented in the Goals, Objectives and Policies section of this document) is not jeopardized. In instances where such efforts are insufficient to prevent conflict, a preferred approach is to seek meaningful and ongoing intergovernmental planning. A supporting, or alternative approach, is to minimize conflict by limiting planning and development actions to mutually acceptable “spheres of influence.” As another supporting or alternative approach, directing non-farm development to annex to cities and villages in as compact a pattern as possible can minimize many jurisdictional disagreements. Where intergovernmental tensions are high, and key public policy objectives are clearly at risk, new State Statutes that provide for a formal intergovernmental boundary agreement process may be essential. This approach, although complicated, time-consuming, and expensive, is designed to result in long- term intergovernmental agreements which are binding upon successor elected bodies and may include a very wide range of planning and development considerations beyond municipal limits.



H. INTERGOVERNMENTAL COOPERATION 1. CITY OF PLYMOUTH As Map 1 depicts, the City of Plymouth is centered in the Planning Area. The City has a long history of community planning, with comprehensive plans prepared for the City in 1966 and 1985. The 1985 Plan stressed a compact development form adjacent to and compatible with existing development. The City of Plymouth’s potential ETJ extends 1½ miles from the current City Limits in all directions. 2. CITIES AND VILLAGES The incorporated jurisdictions located in the vicinity of Plymouth are the Villages of Elkhart Lake (7 miles north, population 967), Glenbeulah (3 miles west, population 463), and Waldo (7 miles south, population 480), and the Cities of Sheboygan Falls (9 miles east, population 7,775) and Sheboygan (13 miles east, population 49,288). 3. TOWNS The unincorporated jurisdictions located in the vicinity of the City of Plymouth are predominantly rural and agricultural in character and use. The Town of Plymouth surrounds the City. The Town of Plymouth has grown from 3,115 residents in 2000 to 3,195 in 2010. The Town of Sheboygan Falls (2010 est. population of 1,806) is located to the east. The Town of Lyndon (2010 est. population of 1,499) is located to the south. In October 2008, the Town of Plymouth administered a long range planning survey to town residents. When asked why they had chosen to live in the Town of Plymouth, the top response was “Rural, country atmosphere/natural environment.” When asked if preservation of agricultural land in the Town of Plymouth was important, 59% of the respondents “strongly agree(d)”, 25.5% of the respondents “agree(d)”, 2.9% of the respondents “disagree(d)”, and less than one percent “strongly disagree(d)”. When asked if the Town of Plymouth should keep its present boundaries and challenge any attempts to change them, even if it means large legal fees, 47.9% of the respondents indicated “Yes” and 36.4% of the respondents indicated “No”. When asked if intergovernmental cooperation and communication between the Town of Plymouth and the City of Plymouth is important in the future, 84% of respondents “agree(d)” and 4.3% “disagree(d)”. 4. SHEBOYGAN COUNTY Sheboygan County has been growing at a low to moderate pace. During the 2000s, the County’s population increased 2.5% from 112,656 to 115,507 residents. As jobs have become more difficult to find within the County, there has been a marked increase in commuters to jobs in the metro areas of Milwaukee and, to a lesser extent, the Fox Valley. As employment centers in those areas continue to disperse, however, to outlying suburbs—for example to Grafton, Mequon, Menomonee Falls, Cedarburg, Germantown, and West Bend—commuting time to Sheboygan County is reduced. 5. REGIONAL PLANNING JURISDICTIONS Regional planning services for the City of Plymouth and all of Sheboygan County are provided by the Bay-Lake Regional Planning Commission. The Commission provides an advisory role to local governments in the region on issues related to transportation, population, economic development, housing, and natural resources.



6. IMPORTANT STATE AGENCY JURISDICTIONS The Wisconsin Department of Transportation’s (WisDOT) District 3 office (Green Bay) serves the City of Plymouth and all of Sheboygan County. The City of Plymouth should continue to maintain good relations with District 3 as planning, congestion, and safety issues arise along the STHs 57 and 23 corridors. The Wisconsin Department of Natural Resources (WisDNR) provides service to the City out of its Southeast Region office located in Milwaukee, as well as offering limited hours at its service center on Pilgrim Road in Plymouth. 7. SANITARY SEWER SERVICE AREAS AND DISTRICTS The City of Plymouth provides sewer service within its Urban Service Area (including the former Town of Plymouth Sanitary District located along STH 57 between CTH C and the railroad) and treats wastewater conveyed by force main from Rocky Knoll Health Care Center and the Little Elkhart Lake Rehabilitation District located to the north of the City. Service Area maps developed for the 1991 Wastewater Treatment Facilities Plan remain valid for the short term and will be reviewed and updated when the next facilities plan is undertaken. The WisDNR regulates the effluent discharge from the City’s wastewater treatment plant through a permit system. March 31, 2011 marked the nine-year anniversary that WPDES Permit No. WI-0030031-5 has been expired. A conflict exists between U.S. EPA and WisDNR over issuing a new permit, and thus the City continues to operate under the old permit. Depending on what changes and requirements are issued in the new permit, the City should then move forward on updating its wastewater treatment facilities plan. 8. SCHOOL DISTRICT The City of Plymouth, and virtually all of its ETJ, is served by the Plymouth School District.

I. IMPLEMENTATION Creating a Comprehensive Master Plan is just the first step in directing community growth. Subsequent planning efforts must focus on providing direct connections between the Plan’s recommendations and actual development. The most effective ways of accomplishing this are to adopt development regulations which directly implement planning policies, and then, for the Plan Commission to evaluate all development related proposals (annexations, land divisions, re-zonings, conditional uses, planned developments, and public investment and service decisions) based on their consistency with this Plan. Reference of decisions to Plan recommendations will help establish both their legal defensibility and their economic efficiency. The City’s Zoning and Land Division Ordinances should be amended to implement this requirement. Finally, to be effective, this Plan should continue to be evaluated by community representatives and amended as needed to keep current with changes brought about by time. A three-to five-year evaluation cycle is recommended.

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City of Plymouth Comprehensive Plan Chapter III: Issues and Opportunities Identification


• A revitalized Downtown Plymouth with a full array of commercial, office, park and entertainment uses. Many of these uses located in the district’s well-preserved historic buildings.

• An adopted a Comprehensive Plan that was creative, forward-thinking, and provided real strategies that were implemented.

• An improved transportation system in the community that was achieved through thoughtful street layout design and consideration of traffic flow with each new development.

• An enhanced millpond and Mullet River waterfront area that attracts residents and visitors alike to the downtown area.

• A fully developed bike and pedestrian network that connects the Downtown to surrounding neighborhoods, schools, parks, and commercial areas.

• An attractive gateway into the community, which was achieved through high-quality site design standards for all commercial and industrial development. 2. Open House The City held an open house on February 15, 2001 to allow residents to review the draft Comprehensive Plan. Approximately 85 residents attended the two-hour session. Key issues addressed at the open house were preserving community character, downtown redevelopment, and economic development. Several comments discussed at the open house were incorporated into this plan document. C. KEY PLANNING ISSUES AND CHALLENGES The essence of the need for a Comprehensive Master Plan for the City of Plymouth is the uncertainty regarding future population growth, land development activity, and traffic, and the need to guide and accommodate anticipated growth in a manner that forwards the long-term objectives of the community. Detailed local plans, therefore, are the essential planning component of long-range plan implementation. When used in combination with development regulations, public investments, and coordinated cross-jurisdictional planning efforts, local master comprehensive plans are very effective in achieving a future which best fulfills the desires of the community and the region as a whole. Within the Planning Area, key planning issues and challenges revolve around the issue of how, when, and in which jurisdictions new development is approved. This concern necessarily involves issues of the location, type, and quality of development; required public utilities, transportation, and recreation facilities; and annexation. Community consensus on these issues is essential to maintaining the highest possible quality of life at the lowest possible cost of living. Intergovernmental consensus on these issues is becoming an increasingly important component of local plan implementation. Specific critical issues entail: • the need to enhance the unique identity and community character of the City of Plymouth and surrounding area; • the need to ensure a top-quality appearance of development;

• the need for logical, efficient, complementary, and predictable land use patterns;

• the need to protect the broad range of environmental resources which contribute to the health and beauty of the area;



• the need for efficient transportation facilities and services which are closely coordinated with development patterns, uses, and site designs; • the need to provide public facilities efficiently and effectively;

• the need to recognize the importance of intergovernmental coordination and to contribute positively and proactively to such efforts; • the need to ensure efficient and predictable fiscal performance into the future; and,

• the need to implement the plan recommendations so as to best respond to these general needs while balancing overall community objectives with the site specific desires of individuals and neighborhoods. The following set of planning goals, objectives, and policies is designed to establish the comprehensive policy framework necessary to effectively respond to these challenges.

City of Plymouth Comprehensive Plan Part Two: Goals, Objectives, and Policies


PART TWO: GOALS, OBJECTIVES, AND POLICIES

City of Plymouth Comprehensive Plan Part Two: Goals, Objectives, and Policies


City of Plymouth Comprehensive Plan Chapter IV: Planning Goals and Objectives


IV. PLANNING GOALS AND OBJECTIVES The following goals and objectives are based on a review of existing plans and basic planning principles and objectives. Together these goals, objectives, and policies (in the following section) will provide the policy guidance and vision the Plan Commission, Common Council, general public, and other interested groups and individuals need to guide the future growth and development of the Plymouth area into the 21st century. Each element of the City of Plymouth Comprehensive Plan includes a set of goals and objectives. The goal setting process includes the identification of present and future problems, the determination of aspirations in the form of goals and objectives, and the identification of strategic issues and priorities among them. Goals are broad statements that express general public priorities about how the City should develop and redevelop during the next 20 years. The goals are formulated based on the identification of key issues, opportunities and problems that affect the City. Objectives are more specific than goals and are usually attainable through strategic planning and implementation activities. The accomplishment of an objective contributes to the fulfillment of a goal. Additional definitions include “shall”: required policy no exceptions; “should”: required policy unless approved variance from Plan Commission or City Council; “may”: a desired or suggested policy but not required; and “encourage”: a desired or suggested policy but not required.

A. AGRICULTURAL, NATURAL, & CULTURAL RESOURCES 1. Goal: Protect agricultural, natural, and cultural resource features in the Plymouth area. Objectives: a. Strive to preserve and enhance environmental corridor features including waterways, floodplains, wetlands, groundwater recharge areas, steep slopes (greater than 12%), wildlife habitat, scenic vistas and woodlands through the adoption and implementation environmental protection zoning and subdivision ordinance standards.

b. Require natural resource features to be depicted on all site plans and preliminary plats and certified survey maps in order to facilitate preservation of natural resources.

c. Encourage the cleanup of contaminated sites that threaten the public health, safety and welfare.

d. Prevent the proliferation of low-density unsewered development in the unincorporated areas around the City.

e. Work with surrounding communities to encourage an orderly, efficient development pattern that preserves natural resources and minimizes conflicts between urban and rural uses.

f. Work with the local historic society or consider establishing a historic preservation commission to protect resources that contribute to Plymouth’s character.

g. Support community events and programs which celebrate the history and culture of Plymouth, in collaboration with the Plymouth School District, Chamber of Commerce, churches, clubs, recreational leagues, and other groups.



B. COMMUNITY CHARACTER AND GROWTH MANAGEMENT 1. Goal: Enhance and maintain neighborhoods in the City of Plymouth Objectives: a. Promote redevelopment of lands with existing infrastructure and public services and the maintenance and rehabilitation of existing residential, commercial and industrial structures.

b. Design livable neighborhoods in Plymouth that are pedestrian oriented and where possible, are generally located within a ten minute walk (approximately 1/3 mile) of a public park or open space area.

c. Discourage high traffic volumes and speeds in residential neighborhoods.

d. Develop and enforce property maintenance codes and outdoor storage codes to maintain neighborhood quality and tax base stability.

e. When appropriate, design new neighborhoods so that they are centered around civic spaces such as parks, schools, churches, monuments, and similar features.

f. Prohibit incompatible land uses (e.g. high traffic generators, noisy or unaesthetic uses) from locating within or next to residential neighborhoods.

g. Encourage the preservation of historically and architecturally significant structures in Plymouth. 2. Goal: Enhance and maintain the City’s downtown area. Objectives: a. Provide for mixed use development in the downtown area.

b. Encourage rehabilitation, redevelopment, and infill development of older areas in the downtown in a manner which respect’s Plymouth’s character, is compatible with surrounding uses, and improves overall appearance.

c. Provide for continued public access along the Mullet River and millpond in and around the Downtown.

d. Protect the unique quality of the downtown by requiring buildings to be a minimum of two stories. 3. Goal: Maintain the City of Plymouth as a predominantly single family community. Objectives: a. Incorporate general neighborhood design standards designed to provide for a minimum of 65% single family dwelling units in each new neighborhood. b. Incorporate general neighborhood standards designed to provide for a maximum of 25% multiple family apartment dwelling units in each new neighborhood. c. Incorporate general neighborhood standards designed to provide for a maximum of 25% attached single family, duplex, two-flat, townhouse, and condo dwelling units in each new neighborhood.



4. Goal: Preserve and establish visually attractive development. Objectives: a. Preserve and re-establish attractive entryways into the community and passageways through the community. b. Establish downtown design guidelines in the Central Business District for buildings, landscaping, signage, building materials, and parking lots. c. Encourage high quality development throughout the City for buildings, landscaping, signage, building materials, and parking lots. C. LAND USE GOALS AND OBJECTIVES 1. Goal: Create an efficient and sustainable development pattern. Objectives: a. Ensure that conflicts between future and existing neighboring land uses are minimized with logical land use transitions and buffer-yards. b. Strive to achieve a desirable balance and distribution of land uses. c. Use existing public facilities to serve new development whenever possible. d. Require all new development within Plymouth’s long-term growth area to be served with the full array of municipal services, including sanitary sewer, storm sewer, municipal water, police, and fire service. e. Encourage collaboration between the City of Plymouth, Sheboygan County, and neighboring jurisdictions with regard to planning initiatives and development policies. 2. Goal: Provide quality, accessible recreation and open space facilities to all residents of the City of Plymouth. Objectives: a. Ensure that all neighborhoods are located within a ten minute walk (approximately 1/3 mile) of a neighborhood park facility. b. Work jointly with the Plymouth School District to provide adequate recreational facilities and to avoid duplication of recreational facilities. D. TRANSPORTATION GOALS AND OBJECTIVES 1. Goal: Provide a safe and efficient transportation system that meets the special needs of pedestrians, motorists, trucks, and trains. Objectives: a. Ensure that transportation system improvements are coordinated with land development, especially in relation to future STH 23 modifications. b. Coordinate multi-jurisdictional (City, town, county, state) transportation system improvements in the Plymouth area. c. Consider adopting an Official Map within the City limits and its extraterritorial planning area.



d. Provide safe and convenient access between neighborhoods, employment centers, schools, service centers and recreational centers. e. Divert high volume traffic around existing and proposed residential areas. f. Provide a quality transportation system in strategic City growth areas. g. Provide for adequate road capacities and road quality. h. Encourage regional transit service. i. Plan for a complete arterial road network around the City. j. Encourage neighborhood designs that support a range of transportation choices. 2. Goal: Develop and maintain a comprehensive system of bicycle and pedestrian facilities in the Plymouth area. Objectives: a. Encourage pedestrian-oriented neighborhood designs as new developments are platted and existing neighborhoods are revitalized. b. Plan and implement a comprehensive network of sidewalks and bicycle routes. c. Ensure that schools, parks, playgrounds and similar activity centers are well-served by sidewalks and bicycle routes. d. Consider pedestrian and bicycle accessibility when selecting sites for new public facilities such as schools, parks, libraries, and community centers. e. Encourage a land development pattern that minimizes absolute reliance on the automobile, particularly in terms of neighborhood-oriented goods and services. f. Map future pedestrian and bicycle routes, per the Sheboygan CountyPedestrian & Bicycle Comprehensive Plan 2035. g. Require pedestrian and bicycle access to be carefully considered during site plan reviews. h. Ensure that all pedestrian crossings at major intersections are properly designed to provide maximum safety to those crossing these streets E. UTILITIES AND COMMUNITY FACILITIES GOALS AND OBJECTIVES 1. Goal: Provide a cost-effective system of public utilities. Objectives: a. Urban development that requires urban services should be located within the City of Plymouth corporate limits. b. Avoid low density, unsewered urban development in the unincorporated areas surrounding the City. c. Maximize the use of existing utility systems. d. Plan for an orderly extension of municipal utilities. e. Ensure that the City's utility system has adequate capacity to accommodate projected future growth. f. Identify an appropriate location for a shared fire station on the east side of Plymouth.



2. Goal: Coordinate utility systems planning with land use and transportation systems planning. Objectives: a. Encourage urban development to be located within the City of Plymouth where it can be served with a full range of municipal services including sanitary sewer, water, and storm sewer. b. Discourage unplanned, unsewered development on the unincorporated edges of the City. c. Ensure that strategic City growth areas can be adequately served by municipal utility systems. d. Limit urban development in areas that cannot be easily or economically served with municipal utilities such as sanitary sewer, municipal water, and storm sewers.

F. HOUSING GOALS AND OBJECTIVES 1. Goal: Provide safe, affordable housing for all Plymouth residents. Objectives: a. Provide a range of housing sites in the City of Plymouth that meet the needs of persons of all income levels and of all age groups and persons with special needs. b. Identify the availability of land for the development or redevelopment of low-income and moderate-income housing. c. Encourage the maintenance or rehabilitation of the City of Plymouth’s existing housing stock. d. Encourage mixed housing neighborhoods that provide a range of housing types, densities, and costs, which maintain the predominantly single-family character of the community. e. Locate essential community facilities such as schools, churches, libraries, and community centers in strategic locations that provide convenient access to residential neighborhoods. f. Design neighborhoods that are well-served by sidewalks, bicycle routes, and other non- motorized transportation facilities. g. Encourage City landowners to open up suitable undeveloped areas for new residential development as the need arises. h. Create attractive and safe neighborhoods that are well-served by essential municipal services and facilities (sanitary sewer, municipal water, stormwater management facilities, police, fire, etc.). G. ECONOMIC DEVELOPMENT GOALS AND OBJECTIVES 1. Goal: Create efficient, well-designed business and employment centers. Objectives: a. Promote the expansion or stabilization of the current economic base and the creation of a range of employment opportunities at the state, regional, and local levels. b. Provide a generous supply of developable or redevelopable land for industrial, office, and commercial land uses. c. Identify strategic locations for high quality industrial and office developments.



d. Discourage unplanned, incremental strip commercial development along major community entryways. e. Periodically review signage, landscaping, site design, and related development standards for existing commercial, office, and industrial development areas. f. Provide necessary municipal services such as sanitary sewer, municipal water, and stormwater management facilities to strategic City growth areas. g. Avoid premature development at key development locations identified by this Plan until detailed neighborhood plans have been prepared for those areas and approved by the City. h. Promote the concept of development “paying its own way.” 2. Goal: Enhance the City of Plymouth business districts. Objectives: a. Strengthen the retail power of established commercial areas by preventing poorly-planned strip commercial developments on the City’s fringes. b. Encourage strong public-private investment in downtown improvements. c. Enhance the aesthetic quality of Plymouth business districts. d. Encourage infill development on underutilized or blighted downtown properties.

H. INTERGOVERNMENTAL COOPERATION 1. Goal: Establish mutually beneficial intergovernmental relations with surrounding jurisdictions. Objectives: a. The City of Plymouth should work with surrounding communities to make plans for its extraterritorial area to define both short-term and long-term objectives and policies regarding growth and development. b. Work with surrounding municipalities to ensure the long term ability of the City of Plymouth to expand its boundaries in a compact, efficient pattern into the long term future. c. Work with neighboring municipalities to control the site design of development within the Plymouth ETJ in a manner that forwards the recommendations of this Plan. d. Work with neighboring municipalities to control the land use within the Plymouth ETJ in a manner that forwards the recommendations of this Plan. e. Work with neighboring municipalities to control the appearance of development within the Plymouth ETJ in a manner that forwards the recommendations of this Plan. f. Work with neighboring municipalities to protect the natural environment of the area within the Plymouth ETJ in a manner that forwards the recommendations of this Plan. g. Work with neighboring municipalities to efficiently utilize and expand the utility and public facilities networks within the Plymouth ETJ in a manner that forwards the recommendations of this Plan.



2. Goal: In the absence of binding intergovernmental agreements and implementation mechanisms, establish extraterritorial controls. Objectives: a. The City should consider detailed planning for its one-and-one-half mile extraterritorial jurisdiction.

b. The City should consider detailed official mapping for its one-and-one-half mile extraterritorial jurisdiction.

c. The City should consider detailed land division review for its one-and-one-half mile extraterritorial jurisdiction.

d. The City should consider detailed zoning for its one-and-one-half mile extraterritorial jurisdiction.

I. IMPLEMENTATION 1. Goal: Implement effective and responsive administrative practices. Objectives: a. Implement the City of Plymouth Comprehensive Plan.

b. Implement administrative flexibility.

c. Implement timely responsiveness and efficient enforcement.

d. Encourage greater public awareness and participation.

City of Plymouth Comprehensive Plan Chapter V: Policies


V. POLICIES Policies are rules or courses of action used to ensure plan implementation and to accomplish the goals and objectives of the plan. The following policies are intended to be used by City decision-makers on a day to day basis. For example, the Plan Commission should use these policies as it considers proposals to rezone property, review site plans, or issue conditional use permits. Site plans, Development Agreements and Intergovernmental Agreements may be used to refine these policies on a site-by-site basis, in instances where the overall public benefit prevails. The policies also provide guidance to the City as it revises development oriented ordinances such as the Zoning Ordinance, Subdivision Ordinance, and Official Map. City staff can use these policies to develop capital improvement plans. Finally, the private sector should be familiar with these policies so that it knows what the City expects in terms of the location, timing, and quality of development. A. AGRICULTURAL, NATURAL AND CULTURAL RESOURCES 1. The City intends to protect its natural resource base from development through the strategic use of the appropriate ordinances and regulatory tools. 2. The City will require new development projects to include City-approved stormwater management facilities. 3. The City will require all site plans, preliminary plats, and certified survey maps to accurately depict all environmental corridor natural resource elements (e.g. wetlands, floodplains, steep slopes, drainage-ways, etc.) that are found on the site. B. COMMUNITY CHARACTER AND GROWTH MANAGEMENT 1. URBAN AND RURAL DEVELOPMENT POLICIES: a. In general, non-agricultural development on lands located within Plymouth’s extraterritorial jurisdiction shall be served with the full array of municipal services. Unsewered urban development is strongly discouraged within the City’s extraterritorial jurisdiction because large unsewered lots cannot be efficiently served with essential public services including sanitary sewer and water, storm sewer, sidewalks, high levels of police and fire service, street maintenance, parks and schools/bus routes. Unsewered development is also discouraged because it allows for scattered development and land speculation that often results in premature conversion of productive agricultural land. b. The City encourages neighboring townships to adopt and implement land use plans which emphasize agricultural preservation, allowance of very limited amounts of very low density residential development, and protection of natural resources in areas within the City’s extraterritorial jurisdiction, but outside the City limits. c. The City discourages the creation of subdivisions not served by public water and sanitary sewer within the Plymouth Extraterritorial Jurisdiction.



2. DETAILED DEVELOPMENT PLAN POLICIES: a. Piecemeal, unplanned development is strongly discouraged by the City. New urban developments shall be designed in the context of a detailed development plan for the subject area and its environs. b. Where appropriate in Planned Neighborhood areas, the City encourages the utilization of traditional neighborhood design concepts as new neighborhoods are platted and developed. Traditional neighborhoods typically include a full range of housing types (single family, duplex, multifamily, townhouse); parks, plazas and public squares; civic buildings and civic art; bicycle and pedestrian paths/walkways; institutional uses (churches, schools, community centers, etc.) that serve as neighborhood focal points; and neighborhood scale commercial, service and office uses. The City shall work with property owners and developers to create traditional neighborhood plans. It should be understood that in traditional neighborhoods, different types of land use, such as single family and multi-family residences, are not interspersed in a random manner, but instead are located in a logical, compatible manner. The City should consider the creation of a special traditional neighborhood zoning district to allow for implementation of the traditional neighborhood design concept.

C. LAND USE 1. LAND USE PLANNING POLICIES: a. The City shall strive for compatibility of adjacent land uses by requiring site plan review for all multi-family residential, commercial, office, industrial, recreational, and institutional land uses. b. The City intends to require new development and redevelopment projects to include high quality building design, landscaping, and signage. Existing ordinances shall be amended as needed to ensure that this policy is implemented in a fair and consistent manner. c. For new development and redevelopment, major activity areas such as building entrances, service and loading areas, parking lots, and trash receptacle storage areas shall be oriented away from less intensive land uses to the greatest degree possible. d. The City shall utilize the site plan review process to require that the outdoor lighting of parking and storage areas be designed in such a manner that it shall not shine onto adjacent properties or public rights of way. f. The City intends to use conditional uses under the zoning process as conditions warrant to limit hours of operation for those limited land uses (e.g. night clubs) that have the potential to have significant negative impact on less intensive neighboring land uses. g. The City strongly encourages shared driveway access, shared parking spaces, and coordinated site plan designs in order to avoid the creation of new commercial strips. h. The City shall protect the visual quality of major community thoroughfares by requiring all development and redevelopment along these entry corridors to include site plan and design review.



2. DOWNTOWN DEVELOPMENT POLICIES: a. The City should provide a central business district zoning district and a special development review process that includes a unique set of permitted uses, building setbacks, strict sign requirements, and architectural standards. b. The City should encourage that new and renovated buildings adjacent to the river or those undergoing major renovation have two fronts (street side and riverside), with both fronts meeting the aesthetic standards for the downtown. c. The City encourages public-private partnership such as the Wisconsin Main Street Program as a way to promote investment in the downtown area and to spur downtown revitalization. 3. RESIDENTIAL DEVELOPMENT POLICIES: a. The City strongly encourages the provision of high quality housing in Plymouth for all residential development groups. b. New housing shall be built in areas of the City with convenient access to commercial and recreational facilities, transportation systems, schools, employment opportunities, and other necessary facilities and services. c. The City encourages improvement of existing housing units within neighborhoods. d. The City encourages the strengthening of existing neighborhoods through maintenance of existing housing stock, creative reuse of vacant or under-utilized buildings, and infill on vacant parcels. e. The City will require all proposed residential developments to dedicate land, or pay a fee in lieu thereof, for public park, recreation, and open space acquisition and development. f. The City will encourage the preservation of its architecturally, culturally and historically significant structures, buildings, and sites. g. Any multi-family residential development that abuts established low-density residential areas should be very carefully designed to minimize potential negative impacts on existing homes. h. Multi-family residential projects shall be required to meet the following minimum standards: 1) The project will not have an undue adverse impact on the character of the surrounding neighborhood nor result in large pockets of high-density housing. 2) The School District schools must have sufficient capacity to accommodate new students who will live in the School District. 3) The street and sidewalk system in the neighborhood can handle the increased amount of traffic that the project will generate. 4) The area is adequately served by parks, open spaces, and civic facilities. 5) The existing utility system has sufficient capacity to serve the project.



i. Site plan review and approval shall be required for all multi-family residential projects ` containing three or more dwelling units. j. The following design guidelines are recommended for all new or expanded multi-family residential development (see also Figure 3). 1) Large, monotonous building facades are undesirable and should be avoided when designing multi-family projects. Balconies, porches, stoops, garden walls, varied building and façade setbacks, varied roof designs, bay windows and similar design features are strongly encouraged in new multi-family residential project designs. Boring, box-like buildings that detract from the visual quality of the community should be avoided. In general, multifamily dwelling units should be designed so that they appear to be a grouping of smaller residential units. 2) Garage doors and parking lots should be located so that they are not the dominant visual element of the project. All outdoor parking areas should be screened from public view. 3) Large unscreened parking lots should be considered undesirable and should be broken up with landscaped islands and similar features. 4) Landscaping should be provided in the following locations for all multi-family residential projects: a) Along all public and private street frontages

b) Along the perimeter of all paved areas (parking lots, walkways, driveways)

c) Along all building foundations

d) Along yards separating land uses which differ in intensity, density or character

e) Around all outdoor storage areas such as trash receptacles and recycling bins

f) Around all utility structures or mechanical structures that are visible from public right of ways or less intensive land uses

g) Within open areas of the site 5) Large, plain-walled parking garages are undesirable and should be avoided. When such structures are necessary to meet parking requirements, the facades of the structures should be broken up with foundation landscaping, varied facade setbacks or projections, and recessed garage doors. In no circumstances should such structures be highly visible from public right-of- ways or low-density residential areas. 6) All parking lots should be directly linked to building entrances by pedestrian walkways that are physically separated from vehicular movement areas. 7) All multi-family projects should provide on-site open space areas that serve the needs of the project's residents, in addition to public park land and equipment development requirements applicable to all residential development.

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8) Avoid the creation of an excessive number of driveway access points along arterial and collector streets. 9) Avoid the creation of inadequately designed driveways (e.g. inadequate driveway throat lengths). c. Encourage commercial structures so that pedestrian areas and plazas are created on the site through the strategic placement of buildings and open spaces. Long, unbroken, or unarticulated strips of commercial structures are discouraged. d. Commercial sites shall be designed to separate pedestrians, bicyclists and motorists. e. Amenities such as benches, fountains, and canopy shade trees shall be incorporated into commercial projects whenever possible. f. Wherever possible, all loading facilities shall be located behind buildings and shall be screened from the view of public rights of way and adjacent properties. g. In multi-building commercial developments, all buildings shall be linked with safe pedestrian walkways that are separated from vehicular traffic areas. h. Pedestrian linkages between adjacent commercial developments should be encouraged. i. Use of common driveways which serve more than one commercial use shall be required, whenever possible. j. Driveways shall be located as far as possible from street intersections so that adequate vehicular stacking room is provided. The number of access points shall be limited to the minimum amount necessary to provide adequate circulation. Direct access onto arterial streets shall be limited. k. In order to minimize conflicts between pedestrians and vehicles, parking lot areas shall be designed so that pedestrians walk parallel to moving cars. l. Screens (hedges, berms, trees, and decorative walls) shall be used to block the view of parking lots from public streets and adjacent residential uses. m. All outdoor storage areas shall be screened from public view. n. All mechanical equipment shall be screened from public view using either architectural elements or landscaping elements depending on the specific situation. o. Large, bulky, box-like commercial structures shall be avoided. The following design principles can be used to avoid box-like developments: 1) Walls shall vary in depth and/or direction. 2) Buildings shall be varied in height and broken up into distinct massing elements. 3) Building facades shall be enhanced by the strategic use of color, creative arrangement of facade elements, or change in materials.



4) Use landscaping and architectural detailing along building foundations to soften the visual impact of large buildings. 5) Avoid blank walls at the ground floor levels. Utilize windows, trellises, arcades, varying materials or art features to break up large wall masses. 6) All exterior walls shall be architecturally treated. 7) Prohibit “Pole barn” type buildings. p. High quality signage regulations that base the area of signs on building frontage, street frontage, and facade area shall be established by the City. q. All outdoor lighting shall be shielded and all light shall be confined on-site through the use of cut-off luminaries. r. Accessibility to pedestrians, bicyclists, and transit service shall be carefully considered as commercial buildings are placed on the site. Extra deep building setbacks shall be avoided. s. Where possible, parking lots shall be placed behind buildings to lessen their visual impact on the community. t. The City will carefully consider the impact of proposed commercial rezoning on the economic viability of existing commercial areas in the community before it makes a decision on a rezone request. 5. INDUSTRIAL DEVELOPMENT POLICIES: a. In situations where industrial uses abut non-industrial uses, screening shall be provided. Hedges, evergreen trees, berms, decorative fences or a combination of these screening elements shall be used to satisfy this requirement. b. Long, monotonous industrial building facades shall be avoided by varying building setbacks and placing vegetation in strategic locations along foundations. c. Parking lots for industrial uses should be screened from the view of public right of ways and non-industrial uses. Large parking lots (e.g., employee parking areas or truck parking areas) should not be located between the building and the public right of way. Smaller parking lots (e.g., visitor parking lots) may be located in front of the building. However, such parking lots should be well screened from public rights-of-way and non-industrial uses. d. Pedestrian walkways shall be separated from vehicular traffic and loading areas. e. Industrial projects should be designed so that vehicles servicing the site should be able to move from one area of the site to another without re-entering a public street, when possible. f. Public streets shall not be used for parking trucks associated with the operation of industrial facilities. Truck loading and staging activities shall not be allowed within public streets. g. Loading areas for industrial uses should be located at the rear of buildings and should be screened from the view of adjacent non-industrial uses.

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b. The proposed use shall not have an unacceptable negative effect on existing traffic flows and volumes in the surrounding neighborhood. The existing street system must be adequate to meet increased traffic associated with the project. c. Existing residential uses shall be adequately buffered from the institutional use via the use of decorative fencing, vegetative screening, berms, or similar features. d. Existing institutional uses shall provide to the plan commission potential long-term expansion plans and how these plans would impact the area. Pre-identified institutional expansion areas shall be delineated by institutions whenever possible to minimize the potential for future land use conflicts. e. As a general rule, institutional uses should not generate on-street parking in residential neighborhoods. All parking needs for institutional uses should be met on-site. f. Institutional uses shall be designed to be easily served by transit vehicles. g. Site plan review and high-quality site design, building design, landscaping, lighting, and signage shall be required for all institutional uses. D. TRANSPORTATION POLICIES 1. The City intends to continue to update and enforce the Transportation Plan and Community Facilities Map both within the City limits and within the City's extraterritorial plat review jurisdiction. 2. The City will support a comprehensive community wide way-finding signage system in order to better direct travelers to key destinations in the community. 3. The City will establish bicycle routes throughout the City to connect neighborhoods with schools, parks, and shopping. These routes should be identified with appropriate signs. 4. The City shall require all new development projects to accommodate the needs of pedestrians, bicyclists, and the physically challenged. 5. The City intends to limit the number of direct driveway access points on arterial streets in order to maintain traffic flow and improve safety. 6. The City intends to enhance the visual quality of City gateway corridors by regulating the visual quality of development. 7. The City intends to coordinate capital improvements with the recommendations presented in the City of Plymouth Comprehensive Plan. 8. The City intends to implement the recommendations of the Comprehensive Plan through the City's Zoning Ordinance, Subdivision Ordinance, and capital improvements program. 9. The City will require all new residential, commercial, institutional and mixed-use developments to be served with sidewalks or pedestrian/bicycle paths.



10. The City will require completed subdivisions to provide more than one vehicular access point whenever feasible. 11. The City will utilize the Transportation Plan and Community Facilities Map to plan right of ways for future arterial and collector streets, pedestrian and bicycle paths, bridges, riverwalks, rail lines, airport facilities, and other transportation-related features. 12. Before the City approves any certified survey map, preliminary plat, final plat, site plan or planned unit development, it shall make sure that the proposed development is consistent with the recommendations of the Transportation Plan and Community Facilities Map. 13. Direct access to arterial streets shall only be allowed for major facilities such as large shopping centers or other significant traffic generators. 14. Whenever possible, aesthetic improvements such as canopy shade trees along terraces, pedestrian scale theme lighting, landscaped boulevards, traffic circles, banners, benches, etc. should be included in all arterial and collector street construction and reconstruction projects. 15. All arterial and collector streets should be served by either sidewalks or pedestrian/bicycle paths. 16. The City may protect operational and inactive rail lines for future use as recreational trails, greenways, parkways, etc. 17. The City strongly encourages neighboring townships and Sheboygan County to work closely with the City of Plymouth to implement the transportation recommendations and policies presented in the City of Plymouth Comprehensive Plan. 18. The City discourages the use of cul-de-sacs for more than 20% of the lots in the development, except in very limited situations (e.g. existing topography or development pattern necessitates their use). 19. The City shall require driveways to be adequately spaced to minimize vehicular conflicts and maintain safe traffic flows. Driveway access near intersections shall be limited. 20. Public streets intersecting on opposite sides of a street shall be aligned to facilitate safe cross travel. 21. The City prefers that electric personal assistive mobility devices travel on sidewalks where possible.

E. UTILITY AND COMMUNITY FACILITIES 1. UTILITIES a. The City shall guide new urban growth to areas that can be efficiently served with City sewer, except in extraordinary circumstances. And if such extension occurs, a time-specific and/or condition-specific criteria for annexation of said area to the City shall be required as part of a binding intergovernmental agreement.



b. The City shall require that urban development within the corporate boundary of the City of Plymouth shall be served with the full array of municipal services. c. The City should consider adopting an “Adequate Public Facilities Ordinance.” d. The City may require that new urban development be assessed a connection/impact fee to pay for the costs of connection to the utility system and for future facility expansion. 2. PARK AND OPEN SPACE POLICIES: a. All parks shall be designed with multiple access points from surrounding neighborhoods. b. Acquisition of park and open space lands should occur in coordination with development to provide for reasonable acquisition costs and facilitate site planning for development. c. Parkland in developing areas should be acquired through park land dedication. d. The park system shall be designed to meet the needs of all residents of the City.

F. HOUSING 1. Provide for a wide variety of dwelling unit types within same zoning districts through conditional use process, with detailed standards for setbacks, requires open space, and landscaped buffers in rear and side yards for types of units which are not typical to the zoning district; 2. Adhere to the Comprehensive Plan for limits on the location and density of development; 3. See Policies under Land Use (Residential Development).

G. ECONOMIC DEVELOPMENT 1. Adhere to the Comprehensive Plan for limits on the location and density of development; 2. Put strong emphasis on ensuring the continuous provisions of high-quality office, commercial and industrial sites within the City; 3. Require all zoning requests to comply with the Comprehensive Plan; 4. Regulate public uses as well as private property under the Zoning Ordinance; 5. Develop necessary, responsible, and affordable utilities to support new development.



H. INTERGOVERNMENTAL COOPERATION 1. ANNEXATION AND ATTACHMENT POLICIES: a. The City strongly encourages annexations to occur prior to urban development to ensure that such development is consistent with City plans, zoning and subdivision design standards, and City utility systems. b. Unless advantageous to the City, the City of Plymouth will not extend public utilities to areas beyond the City's corporate limits, and may do so only when there exists a date certain by which annexation will occur. c. The City encourages cooperative planning with neighboring townships and Sheboygan County to ensure that urban development is guided to areas that can be served with City sewer, and that only very low density rural development is encouraged in areas where municipal sanitary sewer service is not available or authorized. d. Continue to use the City/Town Joint Review Board to ensure quality projects along the STH 23 and STH 57 corridors, and look at ways to expand the use of the Joint Review Board to other areas of City/Town development. I. IMPLEMENTATION 1. This Plan should be consulted by the City Council, Plan Commission, Zoning Board of Appeals, Public Works Committee, other governmental bodies and agencies, and the private sector before any decisions related to community development or redevelopment are made. 2. This Plan shall be implemented through the City’s Zoning Ordinance, Land Subdivision Ordinance, and Capital Improvements programming. These should be amended or created as necessary to implement this Plan. 3. The City will provide clear and concise application and procedural requirements for zoning, land division, and other community development related activities. 4. The City will adopt regulations with explicit performance criteria that provides petitioners clear requirements and provides staff with clear review criteria. 5. The City will provide clear enforcement procedures for City ordinances, and ensure that these ordinances are enforced. 6. Where appropriate, the City will provide for creative land development techniques, such as mixed use developments, planned developments, and cluster developments. 7. Consider creating and recording an Official Map per Ch. 62.23(6) of Wisconsin Statutes. 8. This Plan shall be updated at least once every 10 years, and a thorough review should be scheduled at the 5-year midpoint of each 10-year update. Further, the City Plan Commission should annually list “Comprehensive Plan Issues” on its agenda.

City of Plymouth Comprehensive Plan Part Three: Comprehensive Plan Recommendations


PART THREE: PLAN RECOMMENDATIONS

City of Plymouth Comprehensive Plan Part Three: Comprehensive Plan Recommendations


City of Plym

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City of Plymouth Comprehensive Plan Chapter VI: Comprehensive Plan Recommendations


Program has helped finance several historic building renovations in the downtown area. There are two buildings in Plymouth listed in the National Register of Historic Places and 103 in the State Historical Society’s Architecture and History Inventory (see Appendix B). This section of the Plan addresses general implementation strategies for continued preservation efforts in Plymouth over the planning period. The City should consider developing an historic preservation plan for the downtown district. Historic preservation plans articulate the goals of historic preservation for the community and provide an organized framework for efforts to preserve historic properties. The plan could prioritize individual buildings and districts for preservation and reinvestment, identify specific areas and opportunities for rehabilitation and redevelopment, and provide design guidelines that promote appropriate development and rehabilitation in a manner compatible with Downtown Plymouth’s historic character. The plan might also identify strategic amendments to the Central Business (CB) zoning district to help preserve the historic character of the downtown area. To encourage preservation projects in Plymouth’s historic downtown area and surrounding neighborhoods, economic incentives may be offered to private landowners interested in protecting their properties. These incentives help offset additional costs that may be necessary to comply with other, more regulatory aspects of an historic preservation program. The primary economic incentives for historic preservation have been in the form of state and federal tax credits, grants, and low- interest loans. Additional information can be obtained from Wisconsin’s State Historical Society.

B. COMMUNITY CHARACTER & GROWTH MANAGEMENT PLAN This portion of the Comprehensive Plan provides the basis of a comprehensive approach to community character planning, and sets the framework for more detailed land use, transportation, and community facilities recommendations presented later in this report. Historically, the City of Plymouth has experienced modest increases in population and development. This growth has been accommodated with a blend of development, some of which has been elegant and some of which has been disruptive to the community’s valued character. This pattern of “good” and “bad” development has affected the overall character and quality of life in Plymouth. This uneven track record has resulted from the use of development standards and procedures that simply do not ensure that new development will have the desired character of the community. Specifically, critical aesthetic components of development (such as architecture, open space connections, or the preservation of community entry experiences) have often gone unrecognized in the past. Many communities across the nation have begun to realize this shortcoming, and have adopted standards and processes that attempt to achieve desired development character. Detailed site plan and building design review are two commonly used techniques that have yielded noticeable results. Required landscaping standards and tough signage limitations are other commonly used aesthetic techniques. In addition, many older communities are now making concerted efforts to guide re-investment into “worn-out” portions of communities and to preserve historic resources. This Plan recommends that the City continue to pursue all of these techniques and approaches. Still, these endeavors cannot ensure that a community will retain its identity, that older neighborhoods will remain attractive to new residents, or that aging commercial areas will continue to compete successfully with new edge-oriented projects. In recognition of these more complicated challenges, progressive planning practice has evolved into the realm of truly planning, protecting, enhancing, and creating the desired character of community development.



1. COMMUNITY CHARACTER COMPONENTS A wide variety of elements contribute to the creation of community character. These elements should be considered with all development proposals and government actions associated with implementation of this Plan. The City has some measure of control of nearly all of these elements through zoning, subdivision, and building regulations and public investments. Elements of community character include: Geographic Context A key element defining Plymouth is its setting along the Mullet River at the edge of the Kettle Moraine. The City recognizes that a clean, scenic, and accessible river flowing through the heart of the community is an important asset. The scenic Kettle Moraine State Forest and productive farmlands, interspersed with pockets of wetlands and woodlands, define the surrounding countryside. Planning and development within the community must ensure that the relation of new development to these defining geographical features is always considered. Other, more subtle, components such as drainage-ways, steep slopes, and ridgelines evoke a strong “sense of place” for Plymouth and create a distinct landscape for this region of Wisconsin. These features should be protected, and yet made as visible and accessible as possible. Urban Form The urban form of Plymouth is derived from its historic development as a mill site and rail-oriented community that has expanded along both sides of the Mullet River. While undergoing substantial changes since its initial development, the downtown area retains many of the charms of smaller historic downtowns across Wisconsin. This character is reflected in both the commercial brick buildings along Mill Street and several architecturally significant residential homes in the surrounding neighborhoods. These unique properties provide local landmarks and enhance the overall “urban” character of the community. This component is especially important for the Central Mixed Use district proposed for the City. Density and Intensity of Development The most visually successful transitions of land use occur where residential densities (as defined by the number of dwelling units per acre) and non-residential intensities (as defined by floor area ratios and the percentage of land left in green areas) remain relatively consistent, even though dwelling unit types or land uses may vary significantly. The creation and careful application of zoning districts that encourage uses of similar density or intensity make for more gradual and visually comforting transitions between adjacent zoning districts and adjacent parcels in the same district. Building Scale Consistency of building scale (height, width, and area) on adjacent properties or zoning districts is also important in defining community character. With the exception of carefully designed and properly sited institutional uses, large differences in building scale on adjacent properties are disruptive to an urban fabric. For example, proposed townhouses, multi-family residential buildings, or commercial and industrial structures that are inconsistent with a smaller scale of surrounding buildings should either find other locations or should incorporate design elements that create an appearance of several smaller structures. Maintaining consistent building scale may be obtained through the application of appropriate zoning districts and detailed design review with reference to surrounding properties and buildings. Building Location Consistent building setbacks are also important in both residential and non-residential areas to defining a visually pleasing and historically sensitive development. Often, communities are successful

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Eastern Avenue / County Highway C Eastern Avenue is the most important entryway into Plymouth. Existing strip commercial development along Eastern Avenue defines much of the entryway experience. The City should strive to protect and improve the entryway experience though improved building and site design, landscaping, and controlled access for commercial development, as described and illustrated in Part Two, Chapter V(C)4 of this Plan. The restriction of future billboard development along this corridor is also paramount in preserving the character and appearance of this corridor. The following are recommendations for improving the visual character of this gateway corridor:

• Over time, bury overhead power lines and remove the poles. • Provide continuous pedestrian walkways on both sides of the roadway. • Provide decorative street lights with banners. • Improve way-finding signage to community destinations. • Provide intersection improvements at STH 57 and Eastern Avenue including pedestrian crosswalks with walkway lights, decorative streetlights, landscaping, and way-finding signage. Western Avenue / County Highway C Western Avenue is an important entryway into the community from traffic originating from the west. This entryway is currently defined by open space, a cemetery, and scattered residential uses transitioning into higher density residential development. The Land Use Plan that follows suggests future residential development along much of this corridor. Planned residential development should back onto this highway, with generous landscaped buffer yards. Milwaukee Street / State Highway 67 Two areas along Milwaukee Street, near the STH 23 interchange to the north and the intersection of CTH PP to the south, are also important entryways into the community. The entryway experience from the north is characterized by a mix of commercial, institutional, open space, and residential uses. The entryway experience from the south is characterized by residential uses and overhead power lines. The south entryway currently has a welcome sign. The Land Use Plan that follows suggests commercial development at the intersection of CTH PP. This development should reflect high-quality building design and landscaping and low-key signage. The following are recommendations for improving the visual character of this gateway: • Provide native landscaping features at the STH 23 ramp. • Provide banners and/or hanging flower baskets on street lights. • Over time, bury overhead utility lines. Secondary Entryways Plymouth has a number of secondary entryways, primarily along historic farm to market roads. The secondary entryways into Plymouth are more subtle portals enjoyed mainly by local residents. However, as traffic increases on primary entryways, the City will likely observe increasing travel along these routes as well. Along these routes, quality of development and maintenance issues are of foremost importance. The use of formal entry markers such as signs or public art should be very low key, if used at all.



Protected Community Corridors Beyond the symbolic aesthetic treatments associated with community entryway enhancements, this Community Character & Growth Management Plan recommends the use of strict overlay zoning to carefully control the appearance and coordination of development along the Western Avenue- Eastern Avenue Corridor. More than any other road, this corridor defines the image of Plymouth for visitors and “passers-through.” This corridor should present an attractive face to encourage repeat visitors and tourism. It is also important for the community’s self-image. The City should emphasize prevention of excessive signage and lower quality “side-of-the-road” development in this highway corridor. The City should attempt to maintain residential character along appropriate segments of this corridor, through such means as street tree enhancement and ensuring compatible setback for new development and redevelopment projects. Entryways should be protected as described above. Key Vista Locations This Plan seeks to preserve an important component of Plymouth’s community character by identifying key vista locations in and around the City. Where possible, the view-sheds accompanying these vista points should also be protected and preserved. Protecting public access to these vista points and critical view-shed termini as public parks or private open spaces is of particular importance. These vista points include: • Mill Street/Summit Street, where the downtown district is present from below.

C. LAND USE PLAN This section of the Comprehensive Plan is intended to guide the land use development of the City of Plymouth over the next 10 years and beyond. These recommendations are based on the goals, objectives, and policies presented in Part Two and the community character recommendations presented in the previous chapter. Long-range land use planning allows municipalities to phase and guide development in a manner that maintains community character, protects sensitive environmental features, and provides efficient municipal services. Land use planning also enables the City to identify lands well-suited for public purposes such as parks, schools, municipal facilities, major roads, and drainage facilities. Wisconsin Statutes specifically allow cities to prepare plans for lands both inside and currently outside its municipal boundaries. To effectively manage growth, this Plan identifies desirable land use patterns within the existing City limits and in unincorporated areas around the City. Implementing many of the land use recommendations of this Plan, therefore, will be significantly aided by intergovernmental coordination and cooperation. Although this Plan has been designed to accommodate a larger population than what is projected by official state forecasts, it does not assume that all areas depicted on the Land Use Plan Map will develop during the next 10 years. Instead, the Land Use Plan Maps show those areas in and around the City that are the most logical development areas, regardless of the absolute timing of development. The City of Plymouth advocates the development of a land use pattern that focuses growth in areas that can most efficiently be served by transportation and infrastructure facilities. The land use plan, included as Maps 4a and 4b and described below, may be used as a basis to update the City’s regulatory land use tools, such as the zoning map. It should also be used as a basis for all public and private sector development decisions. These include annexations, re-zonings, conditional use permits, subdivisions, extension of municipal utilities, and other public or private investments. However, the identification of growth areas or land use types does not imply that any area is immediately appropriate for rezoning or annexation. Given service demands and other factors, careful consideration to the levels and timing of manageable development is essential.



The land use recommendations cover a large geographic area. To provide an organized approach to this chapter, recommendations for lands within the current (2011) municipal limits are presented first. Next, recommendations are presented for areas of planned growth on the periphery of the City, between the current municipal limits and the City’s 1½-mile extraterritorial jurisdiction. The land use categories used in presenting this information are as follows: a. Agriculture/Rural: agricultural uses, open lands, undeveloped lands, and single-family residential development at or below a density of one dwelling unit per 35 acres; b. Exurban Residential: single-family residential development at densities between one dwelling unit per acre and one unit per 35 acres; c. Single Family Residential: single-family residential development, generally at densities up to 4 dwelling units per acre; d. Two-Family/Townhouse Residential: single-family and two-family residential development at densities up to 6 dwelling units per acre; e. Mixed Residential: a variety of residential development at densities up to 8 dwelling units per acre, except as approved in a Planned Unit Development; f. Planned Neighborhood: a carefully planned mixture of predominantly single-family residential development, combined with one or more of the following land use categories: two- family/townhouse residential, mixed residential, neighborhood office, neighborhood commercial, institutional, and active recreation. This category is intended to accommodate Traditional Neighborhood Design (TDN) forms of development; g. Neighborhood Office: residential, institutional office, office-support commercial and personal service uses which preserve the residential character through building scale, building appearance, landscaping and signage; h. Neighborhood Business: residential, office, and neighborhood supporting institutional and commercial uses which preserve the residential character through building scale, building appearance, landscaping and signage; i. Planned Business: high-quality indoor commercial, office and institutional land uses, with generous landscaping and limited signage; j. Central Mixed Use: a historic pattern of pedestrian-oriented indoor commercial, office, institutional, residential and urban open space uses with streetscaping and low-key signage; k. General Industrial: indoor industrial land uses and controlled outdoor storage areas, with moderate landscaping and signage; l. Extraction: quarries, gravel pits, clay extraction, peat extraction and related land uses; m. Institutional: large-scale public buildings, hospitals, schools, churches, cemeteries, special-care facilities and other similar uses. Small institutional uses may be permitted in other land use categories; n. Active Recreation: developed park and open space facilities devoted to playgrounds, play fields, play courts, outdoor aquatic centers, trails, picnic areas, and related recreation activities; o. Passive Recreation: undeveloped open space facilities;

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the feasibility of preparing an historic preservation plan for the downtown to protect the district’s historic properties. (See Part Three, Chapter VI(A)3 for a full description of historic preservation planning). The City, Downtown Business Association, Plymouth Chamber of Commerce, and the Plymouth Downtown Revitalization Committee should actively promote the expansion, retention, and upgrading of specialty retail, restaurants, financial services and offices, neighborhood retail and services, and community uses in the downtown district. The downtown district is particularly well positioned for craft, gift and antique stores, and other specialty retail uses that reflect Plymouth’s prominence in the cheese-making industry, as well as capturing the large number of tourists in the community visiting local bed and breakfast establishments or passing through on their way to the Kettle Moraine area. New eating establishments are also appropriate for the downtown area, including a fine dining restaurant or brew pub. The design and mix of uses resulting from rehabilitation and redevelopment should reflect the character of the existing downtown. To the extent possible, the exteriors of existing significant structures along Mill Street should be rehabilitated to restore their original appearance. New buildings should have little to no front yard setback, and the creation of gaps in the streetscape should be avoided. This Plan recommends the following rehabilitation and redevelopment projects in the downtown area:

• Promote the expansion, retention, and upgrading of specialty retail, restaurants, financial services, offices, neighborhood retail and services, and community uses through marketing, investment, and incentive strategies. • Encourage the enhancement of the existing downtown parking lots by installing landscaping (e.g., trees, plants, berms) and eliminating overhead wire lines. • Link the downtown district to the Mullet River and millpond, and a community bike trail system, through way-finding signage. Buildings on the south side of Mill Street should have the rear facades enhanced to create a pleasing entrance from the riverside areas. • Encourage new residential development and redevelopment within the downtown area and west of the City to provide a “built-in” market for goods and services and increase foot traffic. • Continue to renovate and restore historically significant buildings along Mill Street.

• Continue to retain community facilities in the downtown area, including the city hall, library, and post office. Historic Single-Family Residential Areas: Historic single-family neighborhoods surrounding the downtown area are proposed to remain intact. Neighborhoods east of the Mullet River and west of Highland Avenue (Dewey Meadow Subdivision) are also planned for continued single-family residential use. Over the planning period, the City should monitor any movement to convert existing single family residences into two-family (duplex) units within the large parts of the City currently zoned R-2 Single Family. The R-2 district allows such conversions upon approval of the City. Too many conversions in certain blocks may change neighborhood character. Building and grounds maintenance and rehabilitation will be a key concern in the central single- family residential area over the planning period. Data from the 2000 Census and recent building permits indicates that over one-quarter of Plymouth’s housing stock was built before 1940, and most of these homes are located in this central residential area. The City should work with the County,

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General Industrial Areas: Existing General Industrial uses in the North Industrial Park and along the railroad corridor in the central part of the City are proposed to remain. Successfully managing neighborhood impacts of such uses are critical. This can be achieved, in part, by stabilizing and beautifying the edges of these areas. As opportunities for reinvestment and redevelopment occur, the appearance of building facades exposed to the public view, including loading docks and storage areas, should be improved. Use of high quality building materials, improved window treatments, high quality loading and storage screening devices, and landscaping is strongly recommended with all expansion and renovation projects. This Plan seeks to promote the assessment, clean-up, and reuse of existing “brownfield” sites within the City whose redevelopment is complicated by real or perceived contamination. Many of these sites are located on existing industrial properties. This Plan’s land use recommendation for a brownfield site applies only after proper environmental assessment and any required clean-up has occurred. Basic environmental site assessments are needed to determine the type and extent of contamination on potential brownfield sites. This is a critical first step in ultimately reusing these properties. Several state and federal grant programs are available to assist with environmental site assessments. After the site assessment process, the City and private property owners should prepare a unique redevelopment strategy for the property. Such strategies are extremely site specific; therefore, this Plan does not offer one generic approach. New General Industrial uses within the City limits are recommended for undeveloped lands along CTH PP on the City’s southeast side. The General Industrial category includes indoor industrial land uses and controlled outdoor storage areas, with moderate landscaping and signage. All industrial projects in General Industrial areas should meet the recommended site, building, and landscape design criteria in Part Two, Chapter V(C)5 of this Plan. Image and upkeep is especially important for industrial development along STH 57, which serves as the southern “gateway” into the community. Institutional Areas: Most Institutional uses are planned to remain in locations in and near the central parts of the City. These include existing public and parochial school sites, municipal buildings, churches, hospital and medical care facilities, and cemeteries. These uses will remain very important in establishing the character of Plymouth. Building and grounds maintenance should be emphasized to maintain the quality of these areas. One future area of Institutional use is shown in the general area of the far southeastern part of the City. This area has been identified as a possible location for a fire station to serve development on the City’s expanding east side. 2. LAND USE RECOMMENDATIONS FOR THE PERIPHERAL AREA In addition to land use recommendations for lands now within the City, this Plan provides land use recommendations for all lands in the City’s peripheral area—between the current municipal limits and the City’s 1½-mile extraterritorial jurisdiction. Map 4b shows the most intensive development in areas adjacent to the City, where the extension of municipal utilities and services is most efficient. In general, residential development is planned to expand on the west side of the City, between the current municipal limits and Country Aire Road. Most of the large-scale commercial development in the Plymouth area is planned for the City’s east side, along Eastern Avenue, STH 57 and the north side of STH 23. High quality office development is planned for lands on the northeast side along the south side of STH 23. Industrial expansion is planned for the City’s southeast side, near the existing industrial park and extending out along the railroad corridor. This Plan does not



recommend expanding municipal services to properties on the north side of STH 23. The City’s overall development policies for lands within this peripheral area are described in more detail in Part Two, Chapter V(B) of this Plan. In general, intensive rural development (i.e., development not provided with urban services like public sewer and water) should not be allowed within the peripheral area. The City should work with surrounding Towns and Sheboygan County to accomplish this primary objective. Neighborhood Plans Maps 4a and 4b show most of the planned peripheral development on the City’s west side as Planned Neighborhoods. This concept, indicated by the cross-hatching and the multi- colored “pie symbol” on the Land Use Plan Maps encourages a mix of dominant Single- Family Residential development with well- designed, limited components of Two- Family/Townhouse Residential units), Mixed Residential, Institutional, Active Recreation, Neighborhood Office, and Neighborhood Business uses. Such plans require the use of complementary vehicle and pedestrian transportation networks, urban design strategies including the preservation and enhancement of vistas, neighborhood gathering places, and visual focal points. The ability to provide a sound design of such complexity will require the use of Detailed Neighborhood Plans approved by the City. Such plans should specify land use mix, density, street layouts, open space, stormwater management, etc. All development in this land use district shall be guided by a City-approved Detailed Neighborhood Plan for the area. These Detailed Neighborhood Plans should be considered as the baseline upon which more refined Neighborhood Plans could be proposed by the development community. Where developers can demonstrate an improve ment over a Detailed Neighborhood Plan, the City should adopt such improvements as an amendment to the Detailed Neighborhood Plan. The result of this proposed detailed planning will be new neighborhoods that capture much of the charm and unique character of the best neighborhoods in the community—the added benefit of more completely coordinated land use, open space, and transportation patterns. Areas planned in this manner will be more

Traditional Neighborhood Design

The City of Plymouth Comprehensive Plan encourages the detailed planning and development of Planned Neighborhood areas using the concepts of “Traditional Neighborhood Design.” Design elements commonly found in traditional neighborhoods include:

• Reduced building setbacks that create a distinct sense of place and charming human scale by bringing buildings close to the sidewalk and street; • Use of picket fences, wrought iron fences, masonry walls, or hedgerows to define the outdoor space between the home and street and to create human scale spaces; • Use of front porches and stoops to encourage social interaction between neighborhood residents and to create visual interest in building facades; • Pulling back garages behind the front facade of the home as much as possible or placing the garage in the rear yard of the home with access from an alley, lane or parking court; • Use of public plazas, greens and squares to provide focal points for the neighborhood, create visual interest, and generate highly prominent building sites. Under the new “Smart Growth” legislation, any city whose population reaches at least 12,500 should enact an ordinance that is similar to the model traditional neighborhood development ordinance developed by the University of Wisconsin.

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This Plan anticipates the expansion of Woodlawn Cemetery in this neighborhood. As this neighborhood is platted, an interconnected street pattern should be established. Maps 4 and 5a show a conceptual street network for this neighborhood, including a westerly extension of Johnson Street connecting Sunset Drive to CTH C; and a westerly extension of Main Street, which would eventually connect to Country Aire Road. The exact alignment of a north-south street through this neighborhood will be influenced by the topography of this area, and therefore is not shown on the plan maps. However, a north-south route between CTHs C and Z through the center of this neighborhood is recommended. A bike and pedestrian path should be developed along Main Street to link this neighborhood with nearby Roosevelt-Nutt Park and the downtown area to the east. Westside Planned Neighborhood The Westside Planned Neighborhood is an expansion of existing residential development west of the Mullet River between CTH Z and Hill & Dale Road. This neighborhood of approximately 300- 400 acres is planned for predominantly Single- Family Residential development, compatible with existing subdivisions in this area. Small areas of Two-Family/Townhouse Residential and Mixed Residential would be appropriate for properties adjacent to CTH Z and Hill & Dale Road. Residences on the eastern edge of this neighborhood are within walking distance to the existing Meyer’s Nature Park. A smaller neighborhood park site might be needed as the western edges of this planned neighborhood develop. As this neighborhood is platted, an interconnected street pattern should be established. Map 5a shows a new north-south street connecting CTH Z with Hill & Dale Road. A bike path should be developed to link this neighborhood with the Meyer’s Nature Park and the City’s Recreational Trail. Southside Planned Neighborhood This neighborhood planned for the City’s south side is approximately 200-300 acres in size. It is located south of Hill & Dale Road and north of STH 67, between the Mullet River and Country Aire Road. This neighborhood would serve as the southern “gateway” into the community. This neighborhood is planned for predominantly Single Family residential development, however some Two-Family/Townhouse Residential and Mixed Residential would also be appropriate on properties adjacent to STH 67 and at the intersection of STH 67 and Hill & Dale Road. Again, residential development should back onto the state highway to minimize negative impacts and reduce driveway access points. Neighborhood Business and Office uses would be appropriate near the intersection of STH 67 and Hill & Dale Road. The eastern edge of the Southside Neighborhood is adjacent to General Industrial and Special Use development. It will be critical to buffer these planned residential uses from industrial development. Buffering can be accomplished through a combination of distance, berming, extensive landscaping, and attractive fencing of loading docks, dumpsters, and any outdoor storage areas. The location of the City’s wastewater treatment plant near the eastern edge of this neighborhood (shown as an Institutional use) also presents a significant planning challenge for this area. Thoughtful neighborhood planning will be important for the lands adjacent to the plant. Again, buffering can be accomplished through a combination of distance, berming, and extensive landscaping. The Southside Neighborhood will be well served by roadway connections. These include STH 67, Hill & Dale Road, and a planned north-south street through the neighborhood. This Plan also shows a future road running directly east from where STH 67 curves north, crossing the Mullet River and connecting to Blueberry Lane. Interconnected local streets should be established as this neighborhood is platted. A park site may be needed in this area as this neighborhood develops.



Northeast Planned Neighborhood A neighborhood is planned for lands on the northeast side of the City. This neighborhood is south of the proposed Kiley Way extension and between Pleasant View Road and Fairview Drive. This area can be viewed as a northern expansion of existing and planned residential development in this part of the City, but may also include development similar to the new Intergenerational Center. This neighborhood is adjacent to the large Planned Business area recommended along the STH 23 frontage road and a smaller Planned Business area located along Eastern Avenue. Depending on the intensity of these business and office uses, they should either be oriented to the neighborhood, or, if this is not practical, provide an attractively designed and landscaped rear façade and yard. In either case, strong pedestrian connections should be established between this Northeast Planned Neighborhood and these planned business and office uses. 3. LAND USE RECOMMENDATIONS FOR OTHER PERIMETER AREAS STH 23 Frontage Road Planned Business and Office Area An area of Planned Business development is recommended for undeveloped lands along Kiley Way and its proposed extension on the northeast side of the City. This area would take advantage of the excellent exposure to and access from STHs 23 and 57 and establish the primary “front door” image of the community. It has recently been the site of some Institutional development in the form of two health care facilities. In the long-term, there is an excellent opportunity for the development of a high-quality office park between Kiley Way and STH 23. Development in this area should follow strict landscaping requirements, coordinated signage treatments, and pedestrian and bicycle accommodations that connect this area to planned neighborhoods on the northwest side of the City. While offices would be preferred for lands north of Kiley Way and its extension, business development is recommended for lands on the south side of the proposed frontage road, from STH 57 to just short of Fairview Drive. It is essential that this area redevelops or develops according to high-quality plans. Strict site planning regulations need to be in place to ensure that this area, as the eastern “gateway” into the community, develops in an image fitting the character of Plymouth. Larger, community-serving commercial uses are appropriate for this area, preferably uses which would not negatively impact the Downtown district. Development should be oriented for highway service uses such as regional retail facilities that require a large building footprint and easy access to STHs 23 and 57. Heavy landscaping, modest and coordinated signage, and quality building material for commercial sites are strongly recommended. Street access must be carefully coordinated with the land use pattern to ensure that conflicts are not created between land use and traffic. The area north of Kiley Way and its extension would provide a very attractive setting for office and research development, office support uses such as financial institutions, and high-quality hospitality uses such as hotels, conference facilities, sit-down restaurants, and regional and professional services. Drive-through uses, gas stations, and commercial/retail uses should be prohibited in this area, and should instead be directed to the areas on the south side of Kiley Way and its extension. This office area would serve to distinguish Plymouth from other cities in the region that have permitted similar locations to fill up with strip and “big box” development. This high-quality development area will serve as the primary “front door” to the community.



STH 57 and STH 23 Planned Business Areas An area of Planned Business development is recommended for properties along both sides of STH 57, between CTH C and Valley Road. Other areas of Planned Business development are shown at the intersection of STH 57 and CTH PP, and along the north side of STH 23. In each of these areas, new development should be oriented for highway service uses such as regional retail facilities that require a large building footprint and easy access to STHs 23 and 57. Heavy landscaping, modest and coordinated signage, and quality building material for commercial sites are strongly recommended. Over the planning period, there will be a need in these areas to clean up land use inconsistencies, improve the appearances of most existing development, and coordinate road, bike and pedestrian links. Southeast Industrial Area Maps 4a and 4b suggest an expansion of the existing South Industrial Park on the southeast side of the City. Most existing development in this park is best classified as General Industrial, which includes indoor industrial land uses and controlled outdoor storage areas with moderate landscaping and signage. While high quality site design and building exteriors are preferred to ensure this area establishes a good image for the City as viewed by regional and local traffic from STH 57, siting requirements should not be so burdensome in a tight economy as to cause industries to build or expand elsewhere—or not at all. Exurban Residential Area The Plan recommends that existing, unsewered residential development in areas outside the city limits but within the extraterritorial area remain. New Exurban Residential uses—at low densities —are recommended only in those areas surrounded by existing exurban residences, where infill development is likely to occur. In the absence of binding intergovernmental agreements, the City should actively oppose other forms of development in this area. The City should also continue its policy of not extending sanitary sewer service and public water service into these areas, except to parcels annexing into the City, or per the conditions of a binding intergovernmental agreement that does not compromise the ability of the City to grow its area and tax base for the foreseeable future. Special Use Areas Because of the uncertainty of development in an area of about 40 acres north of CTH PP between South Street and Highland Avenue, this Plan has designated this area as Special Use. Because this area has good access to CTH PP and is adjacent to planned industrial use to the south, the long-term use might be General Industrial. However, this area is restrained by topographical features. If this area does not develop for industrial uses, high-quality mixed use or residential development might be appropriate. A second Special Use area has been designated on the east side of STH 57 south of CTH PP. Due to its location along the highway, business uses would certainly be appropriate. However, the surrounding industrial designations also make a future industrial use appropriate. Since either use would be acceptable for this area, the Special Use category was selected to ensure flexibility. Agriculture/Rural Areas The majority of lands in the peripheral area are planned for long-term agricultural use. Other lands at the periphery are identified as Environmental Corridor lands. Only development that is of an agricultural or rural nature—at low densities—is recommended for these areas. In the absence of binding intergovernmental boundary agreements, the City should actively oppose other forms of development in this area. The City should also continue its policy of not extending sanitary sewer service and public water service into these areas.



4. FIVE-YEAR INCREMENTAL LAND USE PROJECTIONS

Wisconsin statutes require Comprehensive Plans to include projections, in five-year increments, for future residential, agricultural, commercial, and industrial land uses in the community over the next 20 years. These projections should be tied to the City’s population and employment forecasts presented in Part One of this Plan. The methodology used to project the City’s future residential land use acreage employed the projected housing needs presented later in this report (see Part Three, Chapter VI(F)), an assumed dwelling unit per acre ratio for each housing type, and a multiplication factor (2.0) to allow for market flexibility. Based on this methodology, the City would need to accommodate approximately 220 acres between 2010 and 2015, and 240 acres between 2015 and 2020. The projection of 300 acres by 2010 was about 200 more residential acres than was annexed or developed. It is even more likely, given the current housing slowdown, that the projected 460 acres between 2010 and 2020 will also be substantially higher than what occurs. To calculate commercial land use projections, the current ratio of residential to commercial land use acreage in the City (8:1), based on the 1999 land use inventory, was assumed to remain constant over the planning period. (It is important to note that some future commercial areas shown on the Land Use Plan Map, particularly along STHs 23 and 57, are intended to accommodate regional economic growth, which is not directly tied to local population or employment forecasts.) Based on this methodology, the City would need to accommodate about 20 acres for future local-oriented commercial development over the next five years, 25 acres between 2005 and 2010, 30 acres between 2010 and 2015, and 30 acres between 2015 and 2020. These acreage amounts do not take into account commercial redevelopment on parcels in the Downtown area or along Eastern Avenue, or regional-serving commercial development likely to locate along the STHs 23 and 57 corridors. To calculate industrial land use projections, the current ratio of residential to industrial land use acreage in the City (3:1) was assumed to remain constant over the planning period. (It is important to note that some future industrial areas shown on the Land Use Plan Map are intended to accommodate regional economic growth, which is not directly tied to local population or employment forecasts.) Based on this methodology, the City would need to accommodate about 60 acres for future industrial development over the next five years, 80 acres in between 2005 and 2010, 90 acres between 2010 and 2015, and 95 acres between 2015 and 2020. Because agricultural land is limited in the City of Plymouth and not planned to expand over the planning period, this Plan did not calculate projections for this type of use. The new statute does not require a Plan to map where these incremental land use acreage should develop. However, this Plan advocates land development near existing development where a full range of municipal utilities and services can be efficiently provided.



Table 14: Planned Land Use Acreage Totals – Plymouth ETJ Area

Land Use Acres Percent Land Use Acres Percent Agricultural/Rural 10,715 46 Exurban Residential 2,200 9 Single Family Residential 800 3 Two Family Residential 50 0.2 Mixed Residential 190 1 Planned Neighborhood 1,300 6 Neighborhood Office 2 0.009 Planned Office 16 0.07 Neighborhood Business 14 0.06 Planned Business 1,720 7 General Business 95 0.4 Central Mixed Use 28 0.1 General Industrial 1,700 7 Extraction 120 1 Institutional 375 2 Active Recreation 500 2 Passive Recreation 75 0.3 Environmental Corridors 1,500 6 Surface Water 110 0.5 Right-of-Way 2,000 9 TOTAL 23,510 100%

D. TRANSPORTATION PLAN This Transportation Plan element of the Comprehensive Plan will facilitate the implementation of safe and efficient movement by: • Supporting appropriate improvements to the existing roadway network,

• Recommending the location of future arterial, collector, and some local roads,

• Proposing a conceptual plan for a bikeway network in and around the City,

• Suggesting a policy for developing and maintaining the City’s sidewalk system,

• Guiding land development into locations and arrangements which promote walking, biking, transit, and shorter car trips. Under Wisconsin Statutes, a municipality may prepare Official Maps to reserve the rights-of-way of future streets, pedestrian/bicycle paths, schools, parks, drainageways, and other public facilities—both within the municipal limits and its extraterritorial jurisdiction. The City should consider preparing an Official Map to mark future roadway corridors, prevent land development in delineated roadway corridors, and obtain sufficient right-of-way for roads when they are needed. Further, as lands along the officially mapped streets or roads (existing or planned) are subdivided, the City can require adequate right-of-way dedication at no cost to the local taxpayers.



It is important to remember that actual construction or expansion of any road may not occur for many years, even after new or additional right-of-way is acquired. However, the City should work to acquire corridors, through dedication or purchase of additional right-of-way, well in advance of actual need. Recommended transportation improvements are shown in Map 5a and described below. Alignments of future roads will be subject to later refinement. 1. ARTERIAL STREETS According to WisDOT, the principal arterial roads in the City Plymouth are STH 67/Milwaukee Street, Mill Street (North Street to Milwaukee Street), and Eastern Avenue. Minor arterial roads include Western Avenue, Highland Avenue, and CTH PP (STH 67 to STH 57). In addition to these existing principal and minor arterial roads, Map 5a identifies the proposed expansion of Valley Road as a new minor arterial road. This expansion of Valley Road would create a much needed east-west alternative route to Eastern Avenue on the east side of Plymouth. The City should be vigilant in obtaining additional right-of-way width (100 feet total) on this route to facilitate eventual future improvements. A traffic study is recommended to address traffic flow issues associated with recent and planned commercial development on the City’s east side. 2. COLLECTOR STREETS WisDOT identifies Reed Street (South Milwaukee Street to South Street), North Street, Main Street (Caroline Street to North Street), Collins Street, CTH PP (STH 57

to Willow Road), Fairview Drive, South Street, Thayer Street, Stafford Street (railroad tracks north to Main Street), Mill Street (Milwaukee Street to Plymouth Street), North Street, Smith Street (Mill Street to Main Street), and North and South Pleasant View Road. As the City expands, existing roads will be extended and new roads will be added to maintain a complete, interconnected roadway network (See Map 5a). Several existing roads will become minor collector streets. These include Country Aire Road, Hill & Dale Road, and CTH Z in the western part of the community, and South Prairie View Drive in the southeastern part of the City. The conceptual layout of the Kiley Way extension and crossroads should improve the movement of traffic in this portion of the community. The types of access control for this frontage road could include limiting all driveways, requiring shared driveways, restricting driveways within 200 feet from the corner of any intersection, or allowing one intersecting road for every 600 feet of roadway length. To further regulate these access control measures, the City should consider mapping permitted access points on an Official Map. The City should consider an Official Map to reserve these new road alignments and appropriate rights-of-way. In general, the City’s recommended right-of-way for collector roads is 100 feet. These

Following standard transportation planning practice, streets and roadways in the City of Plymouth Comprehensive Plan are classified by the following functions: Principal Arterial: A street or roadway designed to move traffic through an area. Principal arterials serve the major centers of activity in a community. These roads accommodate traffic mobility (long, uninterrupted travel). Minor Arterial: A street or roadway designed to both carry traffic and provide access to abutting property. The primary purpose is to serve moderate length neighborhood trips and to channel traffic from collectors and local streets to principal arterials or expressways. Collector: A street or roadway designed to carry traffic and provide access to abutting properties. No signals are provided at intersections. The primary purpose is to serve short length neighbor-hood trips and to channel traffic from local streets to minor arterials and principal arterials. Local: A local street or rural road designed to provide access to abutting property. The hierarchy of street and roadway types forms a network that allows travel from most points of origin to most points of destination in a community by motor vehicle at any time of day.



alignments should then be protected and reserved, and dedicated and constructed when necessary. All collector roads should include sidewalks on both sides and street trees. The City should also work with WisDOT to update the City’s functional classification map (see Map 3). This increases the possibility that state and federal funding assistance may be applied to certain road construction projects. All reclassifications of the City’s present functional road system will require ultimate approval from the Federal Highway Administration. In cooperation with the City, WisDOT’s submittal to the FHWA will need to include maps showing the existing functional classification system and the proposed alterations, statistics regarding the mileage of the functional system, and a statement that the study was conducted in cooperation with appropriate local officials. All changes to the functional classification system are directly related to federal-aid eligibility. 3. LOCAL STREETS New local roads needed to serve development are generally not shown on Map 5a, except where they provide key connections to main roads. Local roads should be shown on detailed neighborhood development plans, and obviously subdivision plats as new neighborhoods develop. In general, the construction of local street connections should be timed so as to avoid serving as de-facto collector or arterial streets until the actual collector or arterial road is constructed. Subdivisions and other developments should be interconnected by local roads. Spreading traffic among several roads allows for the most efficient use of transportation dollars and minimizes traffic congestion on a few main roads. An interconnected system is also preferred for police and fire access, street maintenance, and snow plowing. The City’s required right-of-way width for local streets is 60 feet. The maximum cul-de-sac length is 800 feet to the nearest intersection and/or 1,200 feet to the nearest through street. To address the issue of traffic circulation within and between subdivisions, this Plan recommends that cul-de-sacs be prohibited unless natural features (e.g., topography, wetlands) prevent the extension or looping of a roadway system. If a plat is approved with a cul-de-sac, no more than twenty percent (20%) of the lots should abut a cul-de-sac except where necessary to provide a development solution. 4. PEDESTRIAN AND BICYCLE FACILITIES Pedestrian and bicycle movement is a real alternative for communities of Plymouth’s size and form. Many activities are relatively close to each other, and shopping districts, parks, and schools are generally clustered in the central and eastern portions of the City. Further, there are increased levels of state and federal financial assistance to communities interested in developing bicycle and pedestrian networks. Map 5a shows the City’s existing sidewalk network (shown in red) based on a 2011 inventory. Pedestrian Facilities The City should develop a sidewalk plan and policy that should (a) show all existing roads without sidewalks where sidewalks should be constructed with road reconstruction or new development and (b) provide a policy for the construction of sidewalks on newly platted roads. When it completes this plan and policy, the City should then update its subdivision ordinance to include that policy as a development standard for all new subdivisions. This Comprehensive Plan recommends sidewalks on: • Both sides of all existing and proposed arterial and collector streets, as shown on Map 5a.

• Both sides of key routes to schools, parks, and other community facilities with heavy foot traffic.

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5. INTER-CITY TRANSIT The City should encourage the re-establishment of regional inter-city passenger bus and rail services to Plymouth. The City could also encourage bus companies to provide “on-demand” service rather than regularly scheduled service. In order to account for current low demand for bus transit in the City, a bus would only stop in the City when a person has pre-purchased a ticket for a particular trip at a particular time.

E. UTILITIES AND COMMUNITY FACILITIES PLAN The community facilities element of this Comprehensive Plan is designed to provide an overview of the implications of the recommended land use pattern and transportation network on the full range of community facilities (see Map 5a). More detailed planning will be required to refine these broad recommendations as opportunities or needs for community facility development arise. For example, the City should continue to update park and recreation, sanitary sewer, water, and storm sewer studies and plans on a regular basis. 1. PARK AND RECREATION FACILITIES Park and recreational facilities provide Plymouth residents with both active and passive recreational opportunities, provide a connection to nature, serve as community focal points, increase surrounding property values, and enhance overall quality of life. However, the City must plan for continued park and recreational facilities for these to be provided in adequate numbers, types, and locations to meet the demands of future growth. The park and recreational facility recommendations of this Plan build off of recommendations of the City’s 2009 Outdoor Recreation Plan: • Continue to implement a bicycle and pedestrian trail system as shown on Map 5b. This system is intended to link the City’s downtown, surrounding neighborhoods, schools, and various park sites.

• Expand the existing H.M. Meyer’s Nature Park to a larger neighborhood park site on the City’s near west side. The Recreational Trail is planned to run through this park. This park site serves a part of the community that does not have a local playground. This park site will also serve an expanded residential area to the west. This site could also accommodate a community garden.

• Expand the existing Rotary Park on the south side of the City. This park site will serve nearby two-family and multi-family residential development planned in this part of Plymouth. The Recreational Trail is planned to run through this park. The expanded area could accommodate additional softball fields and other playfields.

This Comprehensive Plan recommends that the City refine the above recommendations, as needed, in its scheduled update to the City’s 2009 Outdoor Recreation Plan. WisDNR requires municipalities to update their plan every five years in order to remain eligible for State Stewardship funds (available annually through the Wisconsin DNR) and other grants to assist with the acquisition and development of parks and trails.

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Sewer and Water Services The City’s wastewater treatment plant, located along CTH PP on the south side, is planned to continue operations at this location over the planning period. Modifications made to this plant during the 1990s provide the City with sufficient capacity to meet short-term growth needs. However, based on the moderate population growth projected over the next 10 to 15 years, and the planned residential development areas on the City’s periphery, the City should update its 1991 Wastewater Treatment Facilities Plan over the planning period to identify needed improvements to the sanitary sewer system. This Plan recommends the City add land for a water reservoir north of the existing reservoir and a well site west of the City along County Road Z. The 1992 Space Facilities Study for Plymouth Utilities recommended consolidating the two facilities located on Milwaukee Street and Reed Street into one facility to be located in an industrial area. As a result, a new Operations Center will be constructed in 2011-2012 at the intersection of South Street and CTH PP. Post Office The City’s Post Office, built in the 1930s, is located in the downtown area on East Main Street. The site includes both a service/retail center and distribution center. Postal Service officials have identified a need for a larger facility in Plymouth to better accommodate delivery trucks. According to postal service facilities specialists, the City of Plymouth needs 14,000 square feet of building space on 2½ acres of land. This Plan strongly recommends that the Post Office remain in Downtown Plymouth. Locating a suitable site for a new post office facility should be a key element in the downtown redevelopment planning effort described in Chapter VI(C)1 of this Plan. Senior Center The previous Senior Center was located at 910 Clifford Street. A committee studied the feasibility of combining the senior center with a day care center to create an intergenerational center and identified a need for about 17,500 square feet for this type of facility. As a result, the Plymouth Adult Community Center now takes up part of the new 29,000 square foot Plymouth Intergenerational Center at 1500 Douglas Drive off CTH E. Communications In July 2000, Plymouth Utilities funded a feasibility study to construct a high-speed data transmission network for the community. The system would include fiber optic cables installed along existing utility poles, easements, and rights-of-way. The network could potentially offer high bandwidth data services, high speed Internet access, and other data services to local businesses and residences. The Fiber Optic Communications Network Study for Plymouth Utilities (October 31, 2000) recommends implementing a fiber optic network in three phases. Phase one would support Plymouth Utilities, city government, public schools and business parks. Phase two would extend fiber connections to large and medium-sized businesses in the City and rural utility serving areas. The third phase would extend fiber connections to all remaining homes and businesses in the City. Due to the mix of communications now available to citizens and businesses from other carriers via cable or wireless service, the utility is focusing on doing just the first phase of the study for itself and for City government. Based off of a 2009 analysis by Multimedia Communications & Engineering, the utility is moving forward with plans to construct a fiber optic system that will tie the electrical substations, water pump stations and reservoirs, and sewage lift stations into the utility’s SCADA system, and provide the backbone for handling the communications for advanced metering infrastructure (AMI) and smart grid systems.



Forecasted Needs The following table shows the forecasted needs in the City of Plymouth for the expansion and/or rehabilitation of existing utilities and facilities or to create new utilities and facilities based on projected growth and development.

Table 15: Forecasted Needs for Utilities and Community Facilities

City Utilities & Community Facilities Timeframe Comments

Park and Recreation Facilities

2025+

Plan for, officially map, and acquire two new neighborhood park sites: one on the City’s far west side and one on the City’s northeast side.

2011 - 2020 Continue to implement a bicycle and pedestrian trail system as recommended in this Plan.

2013 - 2014 Update the City's 2009 Outdoor Recreation Plan.

City Hall N/A The City Hall building is currently meeting the short-term needs of the community.

Public Safety Facilities 2015 - 2020 Consider constructing a new fire station to serve development on the southeast side of the City.

Sewer Services 2014 Update the City's 1991 Wastewater Treatment Facilities Plan.

Water Services

2011 – 2012 Consolidate the two Plymouth Utility facilities located on Milwaukee Street and Reed Street into one facility to be located in an industrial area.

2014 – 2015 Install water reservoir north of existing reservoirs.

2013 – 2014

Install new well on Utility Property on CTH Z.

2011

Install new water main from reservoir to north industrial park along Country Aire Road.

Department of Public Works 2025+ Relocate garage to Plymouth Utilities Operations Center.



3. PUBLIC SCHOOL FACILITIES To an even greater degree than a city, a public school system is adversely affected by the uncertain local development rate. This is compounded in complexity by a lack of predictability regarding the location of development. The City and Plymouth School District will need to work together over the planning period to ensure that appropriate school sites are provided in the key long-term growth areas of the City—particularly on the west side of the community. Over the planning period, there may be a need for one additional elementary school in the community. The City and School District should work together to preserve and acquire a site for this use.

F. HOUSING PLAN The Housing element must be integrated and made consistent with other elements in this Plan, particularly economic development, land use, transportation, and utilities and community facilities. This section presents projected housing needs in the City over the planning period, a summary of housing programs available to Plymouth residents, and a plan to ensure a wide range of housing types and values in the community. 1. PROJECTED HOUSING NEEDS Projecting future housing needs in Plymouth is based on population forecasts and the estimated average household size in the community over the planning period. Based on the moderate WisDOA growth scenario presented in Table 2 and a projected average household size of 2.3 over the remainder of the planning period, the City of Plymouth will need to accommodate 327 new housing units by 2015, an additional 230 units by 2020, and another 220 by 2025. The Planned Land Use Map designates more than enough land for residential development to accommodate the City’s projected housing needs over the planning period. However, this Plan recognizes that not all of the open, developable land in the City’s surrounding area will develop to full build-out capacity over the next 10 to 15 years. Furthermore, allocating more developable land than needed is a common planning practice as it discourages the opportunity for just a few developers to acquire a majority of parcels within the proposed growth areas. 2. AFFORDABLE HOUSING PROGRAMS The City should continue to support programs that provide affordable housing to low-income and moderate- income families in the community. These programs include the Community Development Block Grant (CDBG) program to undertake housing rehabilitation projects for low-to-middle income families, home mortgage and improvement loans from WHEDA, and

Affordable Housing Incentives

The City of Plymouth will strive to have an incentive over the planning period for promoting affordable housing. As part of the new “Smart Growth” legislation, beginning in 2005 the state intended to provide aid to cities for each new housing unit sold or rented on lots less than 1/4 acre in size. Aid would also be given for new housing units sold at no more than 80% of the median sale price for new homes in Sheboygan County. The specific components of the program, including the exact amount of aid, have yet to be developed.



home repair grants from the USDA. The USDA Rural Development program is generally available in cities with a population of 10,000 or less. The City might wish to explore the development of a housing trust fund. A housing trust fund is a pool of money available for housing projects for middle or lower income households. The fund is used to fill financial gaps to make housing projects feasible. Trust funds are replenished on an annual basis or they may be designed to be perpetual and self-sustaining. Revolving funds are sustained by the payments of loan recipients which are then used to supply additional loans. The Planned Neighborhood areas shown and described in this Plan are designed to promote a range of housing choices by advocating a range of densities and lot sizes. Land costs can be up to 25% or more of the total costs for a home. Reducing lot sizes can reduce land costs, which in turn makes housing more affordable to some Plymouth residents. 3. PROMOTING LAND FOR THE DEVELOPMENT OF AFFORDABLE HOUSING The City should strive to promote the availability or undeveloped or underused land as one way to meet the low and moderate-income housing needs in the community. As a first step, this Plan provides an adequate supply of planned land use for higher density development. Other techniques the City may wish to consider include using public or donated land for affordable housing development. Lands acquired by the City through tax forfeiture may be appropriate for affordable housing. The City and nonprofits may participate in a program to acquire land and hold it until the community is ready to develop housing. The City might give priority for sewer and water extension to projects that include housing units affordable to middle- and lower-income households. This priority could be formalized in an ordinance or informally as a plan policy. In addition, the City could encourage infill development on vacant or under-used lots within the built-up area of Plymouth as a means to promote affordable housing. Communities can encourage infill development by preparing an inventory of potential infill sites and distributing this list to developers; adopting flexible regulations which allow development of irregular or substandard infill lots; allowing mixed uses for infill developments, which may enhance the economic feasibility of projects; assisting in the consolidation of infill lots into larger, more easily developed sites; and acquiring abandoned property and demolishing structures beyond rehabilitation. 4. HOUSING BALANCE PLAN The City should attempt to ensure that the historic balance between owner-occupied housing (approximately 70%) and rental housing (approximately 30%) remains stable. This is important to retain the community’s existing character. To implement this important objective, the City should ensure that any new two-family or multi-family residential development is based on a Detailed Neighborhood Plan that pre-identifies an appropriate mixture and arrangement of areas for single-family, attached single-family, two-family and both small-scale and mid-scale multi-family housing development. The Planned Neighborhood provisions of this Plan are designed to promote a balance of residential dwelling types and to provide sound housing for a full range of income levels.



G. ECONOMIC DEVELOPMENT PLAN 1. DESIRED NEW BUSINESSES AND INDUSTRIES The City of Plymouth desires—and this Plan ensures—to continue to provide availability of all forms of urban and suburban development. In particular, the City is interested in continuing to attract large-scale regional shopping facilities as new development and redevelopment occurs along the STH 57 corridor. The City is interested in sub-regional development on the east side of the community along Eastern Avenue. In terms of industrial development, the City encourages the build-out of existing industrial parks in the North and South Industrial Parks. In the longer term, the City is interested in initiating development of an expanded industrial park on the southeast side along CTH PP. The City seeks to promote effective redevelopment of the downtown area. Strategies for downtown redevelopment include revising zoning regulations unique to the downtown, promoting historic preservation, taking full advantage of the Mullet River waterfront, completing a pedestrian trail network through the downtown, and continuing to provide ample public parking space. The City seeks to promote high quality office and research development between STH 23 and Kiley Way and its future extension on the northeast side of the community. 2. ECONOMIC ATTRACTION AND RETENTION This Plan recommends a number of strategies to stimulate economic expansion in the community. Throughout the City’s planned expansion over the next 10 years, this Plan seeks to ensure that there is a sufficient inventory of available sites for all forms of development in the community. The City should continue to cautiously explore the use of TIF districts to attract new development. The City should continue to update and evaluate its Capital Improvement Plan (CIP) to ensure that the necessary infrastructure improvements are in place to attract new businesses and industries. The City should coordinate planning with surrounding Towns to limit the amount and location of non-agriculturally-related industrial and commercial development. The City seeks to redirect such development into areas planned for such use within the City’s limits. To implement this objective, the City should consider employing its extraterritorial powers if substantial industrial and commercial development begins locating in the ETJ area. 3. BROWNFIELD REDEVELOPMENT In Plymouth, there are several opportunities for brownfield redevelopment. While brownfield redevelopment can present complicated problems, these sites provide a tremendous opportunity to engage public and private funding sources in a plan for long-term economic development. Brownfields are more than a public health and environmental issue. In many communities, brownfields pose a number of economic development constraints such as lowering surrounding property values and contributing to a neighborhood’s blighted condition. Successful redevelopment of brownfields can revitalize older neighborhoods and increase local tax revenue. Brownfield redevelopment is also an effective growth management tool, attracting business development back into areas where municipal services are already provided rather than on undeveloped lands (e.g., farmland, open space) at a community’s edge.



Redevelopment strategies for each brownfield are extremely site-specific, dependent upon factors such as previous ownership, past land use, and the type of potential environmental contamination. A detailed environmental site assessment and market analysis is recommended before proceeding in any brownfield redevelopment project. There are a range of funding sources and implementation tools available from both public and private agencies to assist communities, businesses, lenders, and private citizens in the clean-up and redevelopment of brownfields in Wisconsin.

City of Plymouth Comprehensive Plan Part Four: Comprehensive Plan Implementation


PART FOUR: PLAN IMPLEMENTATION

City of Plymouth Comprehensive Plan Part Four: Comprehensive Plan Implementation


City of Plymouth Comprehensive Plan Chapter VII: Plan Implementation


VII. PLAN IMPLEMENTATION Many recommendations of this Comprehensive Plan will require specific implementation activities. This final section of the Plan summarizes these activities. The activities will be required both within the City of Plymouth and within the extraterritorial jurisdiction as depicted on Map 1. The following implementation steps are addressed directly in this Plan for two reasons. First, addressing these topics in the Plan will help establish their legal defensibility. For example, changes to a zoning ordinance are far more defensible if they are designed in accordance with a comprehensive plan. Second, it helps link the goals and policies of the Plan with specific implementation techniques used by the City at a later date.

A. MORE DETAILED PLANNING EFFORTS By its very nature, this Comprehensive Plan is general in many of its recommendations. The Plan does, however, advise the preparation of more detailed plans over the next several years to provide more specific guidance in key areas. These Plans are described in greater detail elsewhere in this document, but are summarized as follows:

• Consider preparing an Official Map to reserve the right-of-way for future streets, pedestrian/bicycle paths, schools, parks, drainageways, and other public utilities. This Official Map should be used as a basis to reclassify the City’s present functional road system in cooperation with WisDOT.

• Work with private property owners to study the feasibility of preparing a Historic Preservation Plan for the downtown business area and surrounding neighborhoods (see Part Three, Section VI(A)). Refer to the Plymouth Downtown Revitalization Master Plan for help in identifying sites and opportunities for redevelopment in the district (see Part Three, Section VI(C)).

• Prepare or require Neighborhood Development Plans for Planned Neighborhood residential areas shown in Maps 4a and 4b.

• Update the City’s 2009 Outdoor Recreation Plan, as scheduled, to incorporate, refine, and expand the recreation recommendations contained in this Comprehensive Plan.

• Prepare a Sidewalk Plan and Policy for the City (see Part Three, Section VI(D) and Map 5a).

B. REGULATIONS 1. ZONING ORDINANCE The City’s current zoning ordinance does not help accomplish many of the objectives contained in this Plan. An entirely new zoning ordinance would be the single most cost-effective way of implementing this Plan. As an alternative to a complete update, the following strategic amendments to the City’s current zoning ordinance should be considered to implement the land use and community character recommendations of this Plan:



• Realign uses within various zoning districts, create new districts where necessary, and re-map properties where necessary to match the land use plan map recommendations. In particular, the City needs review the zoning districts for Planned Office, Neighborhood Office, Planned Business, and Neighborhood Business to achieve many of the planning objectives contained in this Plan.

• Incorporate building design and signage standards which reflect desired high-quality design and respect for the historic character of the community.

• Institute modern landscaping, screening, and natural area preservation standards.

• Consider an Entryway/Community Corridor Overlay District for Eastern Avenue and STH 57. The purpose of this district would be to implement the site design recommendations of this Plan by requiring development located at and around the most important entrance into the community to recognize the City’s adopted objectives of establishing an attractive and high quality image. Building setback, height, mass, roof form, exterior materials, exterior colors, landscaping, and lighting are among the design standards that could be established and reviewed in this overlay district.

• Update site access, parking lot design, and lighting standards. 2. LAND DIVISION ORDINANCE Strategic modifications to the City’s subdivision regulations are also recommended to implement this Plan. The City’s current land division ordinance meets basic State requirements but does not include modern, detailed standards for lot layout, street design, park dedication, and lots created in the City’s extraterritorial review jurisdiction. In particular, the City should incorporate the following changes to its land division ordinance: • Adopt standards for review and approval of lots within the City’s extraterritorial jurisdiction. The City may apply size, density, and layout standards specific to lots outside the City limits. For example, the City’s subdivision ordinance could require that lots created in portions of the extraterritorial jurisdiction designated Agricultural/Rural on the land use plan not exceed an overall density of one lot per every 35 acres owned by the property owner. Alternatively, intergovernmental agreements could be entered to assure that City objectives can be met without exercising the full ETJ authority. • Incorporate provisions to ensure that all land divisions are treated with equal diligence. Certified Survey Maps should not be used as a tool to circumvent technical review issues or development cost participation requirements involved with platting. Under the new “Smart Growth” legislation, any city whose population reaches at least 12,500 must enact an ordinance that is similar to the model traditional neighborhood development ordinance developed by the University of Wisconsin. While not required under the new legislation, this ordinance should be mapped over those areas on the land use plan maps shown as Planned Neighborhoods. The City’s high-level growth scenario presented in Table 2 shows the City of Plymouth nearing 12,500 shortly beyond 2030.



3. FLOODPLAIN ORDINANCE The City has a floodplain ordinance that limits development in the Mullet River floodplain, which is generally defined as land where there is one percent chance of flooding in any year (also known as the 100-year floodplain.) The official delineation and elevation of floodplain boundaries used for mapping the City’s floodplain zone was produced by Federal Emergency Management Agency’s (FEMA) National Flood Insurance Program maps. Regulations restricting or prohibiting development in the floodplain zone have hindered development in downtown Plymouth and discouraged redevelopment on properties adjacent to the Mullet River. Municipalities interested in re-adjusting floodplain boundaries in a specific study area (or throughout the entire community) must follow a three step process:

1. Hire an engineering firm to conduct hydrologic and hydraulic engineering models to calculate floodplain boundaries for the subject area.

2. Submit the re-calculated floodplain boundaries to the Wisconsin Department of Natural Resources Bureau of Watershed Management and the Federal Emergency Management Agency for their review and approval.

3. If approved, amend zoning maps to reflect the re-calculated floodplain boundaries. It is important to note that in some cases the re-calculated floodplain boundaries may be higher than FEMA-established boundaries, thereby expanding the City’s current floodplain zoning coverage. 4. OFFICIAL MAP The City should consider adopting an Official Map to be in accordance with the recommendations of this Plan. Ch. 62.23(6) of Wisconsin Statutes allow cities to adopt an official map. An official map reserves the rights-of-way of future streets, pedestrian/bicycle paths, schools, parks, drainageways, and other public facilities. An Official Map is a very important planning implementation tool because it allows the municipality to achieve plan implementation in an efficient, cost-effective manner. For example, an Official Map allows municipalities to prohibit new development from occurring within the mapped future rights-of-way of streets. Further, as lands along the officially mapped streets (existing or planned) are divided into plats or certified survey maps, adequate right-of-way can be required to be dedicated from the developer to the City at no cost to the local taxpayers. Without an Official Map, substantial street right-of-way acquisition costs may need to be passed on to the local taxpayers in order to widen an existing street or acquire right-of-way for the construction of a new street. An Official Map can also be used to protect critical drainageways and other natural features that are part of the community’s stormwater management system. 5. BUILDING/HOUSING CODES The City should develop a Property Maintenance Code to ensure that properties are adequately maintained to preserve the character of neighborhoods and to protect property values. This is particularly critical in the City’s older neighborhoods and for properties that are not owner- occupied. The City should review its housing code enforcement efforts to determine their effectiveness.



C. PUBLIC INVESTMENT Financial factors continue to increase in their importance to planning. The recommendations of this Plan significantly assist in establishing the full validity of most public expenditures in the street and utility network, in the park system, and in relation to the locational decisions of City government and the Plymouth School District. More importantly, the effort taken in mapping logical land use patterns, transportation system components, and recreation facilities will logically assist in more accurately predicting the costs and benefits of alternative public investment options. Under new State Law regarding the development of impact fees, the importance of the Comprehensive Plan in establishing a legally valid base level of analysis (the future land use and transportation pattern) cannot be overstated. 1. CAPITAL IMPROVEMENTS PROGRAM (CIP) The first component of a comprehensive municipal financing system is the Capital Improvements Program (CIP). The CIP is essentially a budget that allocates municipal funding to various projects over a three- to ten-year period. The recommendations of this Plan will assist the City in identifying a list of possible capital projects. An intermediate level analysis that translates the land use and transportation system recommendations of this Plan into levels of facility demand, and thence projected costs, will be necessary before accurate capital costs can be projected. 2. IMPACT FEES As the infrastructure system needs associated with the land use and transportation recommendations of this Plan are predicted, it will be possible to evaluate a number of different fee alternatives designed to ensure that the costs associated with providing service to a new development are in fact passed on to that development. Although recent Wisconsin legislation limits the use of impact fees (for example, school costs cannot be recouped), it also validates the use of development exaction techniques for a wide variety of facilities with which municipalities are concerned. 3. DEVELOPMENT REVIEW COST-RECOVERY Development review services in the City are currently provided by a combination of in-house City staff and the Plan Commission, with occasional assistance from engineering and legal consultants. The City has the ability to adopt regulations that ensure that the costs incurred by the City to hire such experts are reimbursed or pre-paid by the applicant whose project is initiating the cost. In the long-term, the City should consider hiring a full-time planner.

D. INTERGOVERNMENTAL COOPERATION The multi-jurisdictional environment in which this Plan is prepared entails, by necessity, a complex set of intergovernmental factors that must be taken into account. 1. STATE ISSUES WisDOT and WisDNR are actively involved in programs and policies that directly affect, and are affected by, local land use decisions. The recognition and, where appropriate, promotion of the policies of these agencies by this Plan is an imperative coordination tool. State policies are also implemented through the aggressive promotion of “best practices” for the mitigation of the impacts



that land use decisions have on transportation facilities and environmental resources. Finally, and most importantly, the benefits of controlled growth and compact development served by sanitary sewer facilities promoted throughout this Plan are unquestionably the most effective way of accommodating population pressures in a manner that minimizes adverse regional impacts. 2. COUNTY ISSUES The City of Plymouth intends to work closely with Sheboygan County to jointly implement shared planning objectives for the Greater Plymouth Area, and to identify and resolve any differences. The City supports the County’s general position on farmland preservation in rural areas, and directing most growth to urban areas where a full range of urban services are available. 3. LOCAL / INTERJURISDICTIONAL ISSUES The Plymouth area is expected to grow as a result of many forces that are beyond its control. In order to ensure that this area will maintain its high quality of life, coordination of plans and development actions between the local jurisdictions in the area will be necessary. Such coordination can occur via one or more of the following methods: Extra-Territorial Jurisdictional (ETJ) Powers This local power enables the City of Plymouth to develop plans for lands within its ETJ area, review and act on land divisions, adopt Official Map requirements, and (if proper procedures are used) impose a two-year interim extraterritorial zoning freeze. Although the use of the Official Mapping authority is often acceptable to towns, ETJ plat review and, especially, ETJ zoning powers are generally resented. Under conditions of very poor intergovernmental relations, the use of ETJ zoning and plat review approval/denial authority is effective at implementing City objectives, but it also results in a heightened level of intergovernmental tension. Intergovernmental Planning An alternative to the broad use of ETJ powers that may yield superior results entails the use of informal intergovernmental planning. The City should seize any opportunity for such planning with neighboring communities. Intergovernmental planning with the Town of Plymouth will be increasingly important for areas along STHs 23 and 57. Intergovernmental Agreements If the use of ETJ authority is not desired or the use of informal intergovernmental planning is not effective in forwarding mutual intergovernmental objectives, another alternative is a formal intergovernmental agreement. Wisconsin statutes establish a formal procedure and standards for enacting long-term, binding intergovernmental agreements. A critical and required component of these agreements is a mutually acceptable annexation limit boundary. It must be noted that this legislation imposes a time-consuming and procedurally complicated system for exploring mutual concerns and potentially arriving at a final agreement. Under the statute, such an agreement can be made binding for up to 20 years, and will prohibit future elected bodies from breaking the agreement, except under a formalized agreement modification process and the concurrence of all parties. This process requires the involvement of the State Department of Administration to ensure that all necessary procedures and standards are in compliance.



A less formal (and potentially less permanent) mechanism for pursuing intergovernmental agreements is also available through State Statutory authority on shared municipal services. This Plan recommends that an intergovernmental agreement be pursued between the City of Plymouth and Town of Plymouth to (a) meet the goals, objectives, policies, and land use recommendations of this Plan, (b) allow both units of government to achieve at least part of its development and preservation goals, (c) avoid or limit the use of more controversial ETJ authorities described above and potential legal challenges to annexations, and (d) improve intergovernmental relations. 4. PLAN PROCEDURES The final key to successful plan implementation entails the processes by which development proposals and municipal actions are evaluated. The most effective results are produced by proposal review systems that integrate plan recommendations, regulatory controls, professional staff recommendations, appointed body consideration, and elected official actions. Role of Plans All public policy and City spending decisions related to land use and economic development must be reviewed by the City Plan Commission prior to final City Council approval. Plans should be detailed enough to provide effective guidance on typical development and public investment actions. In instances where the Plan is becoming irrelevant or contradictory to emerging policy or common sense, the Plan should be carefully re-evaluated and revised if necessary. State Statutes (66.1001) require that, by the year 2010, certain actions of the City that affect land use will have to be consistent with this Comprehensive Plan. These actions include zoning and subdivision ordinances, and official mapping. In those cases where the Plan has become out-of-date, or does not provide specific enough advice, the City Plan Commission is responsible for updating the Plan as needed or directing further study. Since this City of Plymouth Comprehensive Plan is a legal comprehensive plan under Wisconsin Statutes 66.1001, any future changes or amendments to the Plan must be made through a formal public hearing process. Role of Regulations This Plan advises the review and update of the City’s development regulations. Ideally, planning related regulations should provide a bridge between proposed development review and public investment decisions. Regulations are the “law of the city,” and therefore should be abided in all cases. Role of City Staff Municipal staff and hired assistants must assist applicants in following procedures and provide officials with all information necessary to make an informed decision. Staff should help applicants refine their proposals to bring them into full consistency with established policies and standards of City plans and ordinances. Role of Advisory Boards and Commissions Advisory boards and commissions should evaluate proposals from a substantive, rather than a political, point of view. As individuals and as a group, they are less constrained by political expediency, and therefore should feel comfortable challenging applicants and staff to make the best possible case for their proposal and recommendations.



Role of Elected Officials Elected officials must make their decisions from the standpoint of overall community impact— tempered by site-specific factors. In this task, they must balance the recommendations made by plans and policies, the objectives of the applicant, the technical advice of staff, and the politically neutral recommendations of advisory boards, with their own judgment on the matter at hand. 5. PLAN IMPLEMENTATION SEQUENCE AND COORDINATION It is hoped that the recommendations and presentation of this Plan are of sound assistance during each step in this process. Table 15 presents implementation strategies and a proposed timeline to carry out some of the recommendations of this Plan.

Table 16: Plan Implementation Strategies and Timeline Proposed

Timeline Category

Strategy

Proposed Timeline

Detailed Planning

Implement the Plymouth Downtown Revitalization Master Plan

Ongoing

Update 1991 Wastewater Treatment Facilities Plan 2014

Update the 2009 Outdoor Recreation Plan 2014

Prepare or require detailed Neighborhood Development Plans 2011 - 2025

Ordinances Prepare complete update or strategically amend Zoning Ordinance 2011 -2012 Adopt Traditional Neighborhood and Conservation Subdivision Ordinance 2015 - 2025

Financing Incorporate recommendations of Plan into Capital Improvement Program 2011 - 2025

Intergovernmental Work with Sheboygan County on implementing shared objectives 2011 - 2025 Evaluate cooperative agreements/plans with surrounding Towns

Explore the feasibility of an extraterritorial zoning and/or boundary agreement with the Town of Plymouth

2011 – 2015

2011 - 2012

Evaluation Reference plan maps, policies when considering development proposals 2011 - 2025

Evaluate the Comprehensive Plan every 3 to 5 years 2011 - 2021

Evaluate Affordable Housing Trends Every Census

6. CONSISTENCY AMONG PLAN ELEMENTS The State comprehensive planning statute requires that the implementation element describe how each of the elements of the comprehensive plan shall be integrated and made consistent with the other elements of the comprehensive plan. Because the various elements of the City of Plymouth Comprehensive Plan were prepared simultaneously, there are no known internal inconsistencies among the different elements or chapters of this Plan.

APPENDIX A

Boundary, Land Use, and Transporta on Maps

APPENDIX B

State Historical Society’s Architecture and History Inventory

APPENDIX C

Tax Increment Financing District Maps

APPENDIX D

Fiber Op c Network

plymouth comprehensive plan

Documents