THE COMPREHENSIVE PLAN

THE COMPREHENSIVE PLAN OF WILLIAMS BAY PREPARED FOR THE VILLAGE OF WILLIAMS BAY, WISCONSIN BY TESKA ASSOCIATES, INC JUNE 15, 1999 Adopted by the Williams Bay Village Board on August 8, 1999 WILLIAMS BAY GROWTH MANAGEMENT COMMITTEE Maggie Gage, Chair Robert J. Carlson Vernon Choyce Virginia Hasek Thomas A. Lothian Roger Nathan Cynthia Stuhley, Secretary BOARD OF TRUSTEES Don Weyhrauch, Village President Jason Arnold Richard Bohn David Burrough Jim D’Alessandro John Marra Don Parker, Jr. Jean Gould, Clerk PLAN COMMISSION Don Weyhrauch, Chair Richard Bohn Gunnar Olsen Jane Pegel Mark Resh Robert Richae Bruce Spangenberg Jean Gould, Clerk EXTRATERRITORIAL ZONING COMMISSION Jane Pegel, Chair Mark Resh Robert Richae Williams Bay Comprehensive Plan - June 15, 1999 CONTENTS INTRODUCTION The Community The Legacy of Planning and Zoning The 1997 Community Survey The Comprehensive Planning Process EXISTING CONDITIONS Demographic and Economic Trends Natural Resources Historic Resources Access and Circulation Land Use and Development Trends Community Facilities and Utilities VISION, GOALS AND OBJECTIVES Growth Management and Comprehensive Planning Community Vision Goals and Objectives TRANSPORTATION PLAN Functional Hierarchy Roadway Character Pedestrian and Bicycle Systems Highway Corridor Design Guidelines LAND USE PLAN Agriculture Open Space Public/Institutional Industrial Commercial Recreation Commercial Residential 1 1 2 5 5 7 7 9 9 9 10 10 14 14 15 16 19 19 21 22 22 27 27 27 28 28 28 28 28 Williams Bay Comprehensive Plan - June 15, 1999 UTILITIES AND COMMUNITY FACILITIES PLAN Sewer and Water Public Parks Schools Village Facilities DESIGN GUIDELINES Site Design Guidelines for Single-Family Subdivisions Site Design Guidelines for Multiple Family, Commercial, Institutional and Industrial Development Building Design Guidelines for all Building Types Lighting Design Guidelines Signage Design Guidelines for Commercial, Business and Industrial Uses Planning Unit 1 - Central Business District Planning Unit 2 - Original Village Planning Unit 3 - Institutional/Campus/Environment Planning Unit 4 - Recent Residential Growth Area Planning Unit 5 - Quarry Uses Planning Unit 6 - Eastern Village Gateway Planning Unit 7 - Developed Unincorporated Area Planning Unit 8 - Resort Area Planning Unit 9 - Future Growth Area Planning Unit 10 - Agricultural/Rural Zone Planning Unit 11 - The Kishwauketoe Nature Conservancy CENTRAL BUSINESS DISTRICT Activity Mix Goals and Objectives Expand Opportunities for Local Residents Strengthen Economic Vitality Enhance Sense of Place Create Residential Harmony Encourage Spirit of Community Implementation APPENDIX Growth Management Implementation of CBD Recommendations 30 30 30 30 31 33 33 34 34 35 35 38 38 40 42 43 45 46 47 48 49 50 51 51 55 55 56 56 62 62 63 65 66 70 Williams Bay Comprehensive Plan - June 15, 1999 LIST OF FIGURES 1. 2. 3. 4. 5. 6. 7. 8. 9. 10. 11. 12. 13. 14. Historic Structures and Districts Planning Area Natural Resources Transportation Plan Route 50 Corridor Recommendations Route 67 North Corridor Recommendations Route 67 West Corridor Recommendations Land Use Plan Community Facilities and Utilities Plan Planning Units CBD Development Concept CBD Amenities and Design Guidelines CBD Improvement Perspectives CBD Streetscape Furnishing Examples 4 6 11 20 24 25 26 29 32 37 58 60 61 64 LIST OF TABLES 1. 2. 3. Population Projections for Walcomet Sewerage District Williams Bay Population and Households Population (Village, Town, County) 8 8 8 Williams Bay Comprehensive Plan - June 15, 1999 INTRODUCTION This Comprehensive Plan will guide the Village of Williams Bay into the 21st century while respecting its legacy of the 19th and 20th centuries. The Community In the beginning was the land - - and the water. It was Geneva Lake that caught the attention of Juliette and John Kinzie in 1831 and inspired reports of its beauty. The first land claims on its shores were recorded in 1835 near the outlet of White River, eventually resulting in the settlement of Lake Geneva. Fontana and Williams Bay were settled in 1836, but development at the western end of the lake was strictly agricultural. These three municipalities and the surrounding unincorporated towns, because of their extraordinary natural setting and proximity to the urban centers of Chicago and Milwaukee, were destined to become one of the premier living and recreation areas of North America. Each community would eventually develop in its own fashion and exhibit uniquely different characteristics. The first family of settlers in Williams Bay and its vicinity was that of Israel Williams, who came with his wife and five sons: Israel Junior, Moses, Royal, Festus and Austin. They established themselves in different cabins in the area and built the first house in Williams Bay, at one time called “Buckthorn Tavern.” It is still standing on Geneva Street. It housed three generations of Williamses, who gave their name to the town. Throughout the years, recreational camps were established in various locations around Geneva Lake, but the five earliest camps, established between 1874 and 1898 were all located in the wilderness at the western end of the lake (Figure 1). In considering the historical significance of these camps, it is important to note that camping as a recreational activity was unheard of in the United States until the middle of the nineteenth century. Such camps shared a common belief that fellowship in a beautiful natural environment could have beneficial effects far beyond the short time spent at camp. Conference Point was the earliest camp established on Geneva Lake (1874). It began as an informal camping retreat for members of a Delavan church, but became so popular that it was soon opened to the public. However, the spiritual element remained. In 1886, four acres of land were acquired for what would become the YMCA George Williams College Camp, now owned by Aurora University. The camp was based on the idea of providing a training center for YMCA workers, combining education and recreation. The first permanent building, the Lewis Auditorium, was constructed in 1890. Camp Holiday Home is located at the western limits of the Village of Williams Bay. In 1887 a group of summer residents formed the Lake Geneva Fresh Air Association. Their objective was to extend the opportunity to enjoy fresh air and lakeside beauty to Williams Bay Comprehensive Plan - June 15, 1999 Page 1 some of the less fortunate children of Chicago. The camp is still operating as originally conceived. The Norman Barr Camp was established by Dr. Alice B. Stockham in 1898 to provide a site for formal discussions inspired by the 1893 Columbian Exposition and World Congress of Religions. It became a summer school of nature study and philosophy prior to becoming Olivet Camp, operating in a manner similar to Holiday Home Camp. The Eleanor Camp was established in 1898 to offer lodging and meals to female students and business women. In the late 1940s it was purchased by the Rock River Conference of the Methodist Church and came to be known as Wesley Woods. Private camping associations also became popular on the shores of Geneva Lake, one of which (the Congress Club) is located in Williams Bay. The Congress Club was a social and musical club organized in 1876 by a group of people who lived on or near Congress Street on Chicago’s west side. The first of several buildings was constructed in 1882. The Club’s architectural significance rests on the 19th century interpretation of the Queen Anne style as an appropriate summer cottage form. In 1895 the Beaux-Arts Yerkes Observatory was constructed on a 53-acre site overlooking Geneva Lake, selected because of remoteness and clear skies. For over 100 years this facility has been devoted to astronomy and astrophysics and contains the world’s largest refracting telescope. Its presence in the community introduces an extraordinary scientific and research ambiance, as well as a major visitor attraction. These historic camps and Yerkes Observatory have strongly influenced the appearance and culture of the Village of Williams Bay for over a century. As the Year 2000 approaches, the Village continues to host those who utilize it as a temporary retreat from a more urban environment, as well as those who now make it their permanent home. Both groups value the natural setting, the small town character, and the culture that is unique to Williams Bay. The Legacy of Planning and Zoning As early as 1922, Jacob L. Crane, Jr. prepared a Development Plan (the first “comprehensive plan”) for Williams Bay, superceded in 1964 by a plan prepared by Maynard W. Meyer and Associates. Both plans refer to Williams Bay as being primarily a “resort settlement” in which “informality” and “picturesqueness” are important characteristics. The 1922 plan called for construction of an “aviation field” (airport) to serve future visitors and complement the train service which brought passengers from Chicago directly to the Bay’s municipal pier. Representing a different era, and following vacation of the railroad tracks, the 1964 plan proposed an east-west expressway extension of Route 50 through what is now Lions Field and a major resort complex between it and the lake. In 1976, a Master Plan for the Development of Village Lakefront Property was prepared by Jaeger, Kupritz Ltd. Architects, much of which has been implemented. And, in 1992, a draft “Master Plan” was prepared for the entire Village by an appointed Comprehensive Master Planning Committee of local citizens, but it was Williams Bay Comprehensive Plan - June 15, 1999 Page 2 never adopted. That same year (1992) the Kishwauketoe Nature Conservancy Commission prepared a Master Plan for the Kishwauketoe Nature Conservancy, a 230-acre tract of land located in the center of the community where the 1922 Plan had envisioned an airport and the 1964 Plan had envisioned an expressway and resort. This property had been acquired by the municipality in 1989, pursuant to the wisdom of the Village Board and the motivation of citizen input. In addition to the Village’s own initiatives, the “greater” Williams Bay area relies on plans prepared by other agencies, including:  A Regional Land Use Plan for Southeastern Wisconsin: 2020  A Regional Transportation System Plan for Southeastern Wisconsin: 2020  Amendment to the Regional Water Quality Management Plan: Walworth County Metropolitan Sewerage District/Williams Bay Geneva National Lake Como Sanitary Sewer Service Area, 1995  The Walworth County Development Plan, 1993  Walworth County Agricultural Preservation Plan, 1978  Town of Delavan Master Plan Update, 1995  A Land Use Plan for the Town of Geneva: 2010  A Regional Bicycle and Pedestrian Facilities System Plan for Southeastern Wisconsin: 2010 These numerous planning documents provide a valuable legacy for guiding the development of Williams Bay and its surrounding unincorporated area. However, they do not substitute for an effective, up-to-date comprehensive plan prepared by the Village itself. Therefore, the Williams Bay Board of Trustees has taken two strategic actions. The first was the March, 1997 adoption of an Interim Extraterritorial Zoning Ordinance which provides an intergovernmental mechanism by which the Village can influence the zoning of unincorporated property up to 1 ½ miles outside its borders. The second was the 1997 appointment of a Growth Management Committee to prepare a new comprehensive plan and design guidelines for the Village. Williams Bay Comprehensive Plan - June 15, 1999 Page 3 FIGURE 1 HISTORIC STRUCTURES AND DISTRICTS Williams Bay Comprehensive Plan - June 15, 1999 Page 4 The 1997 Community Survey In preparation for that effort the Growth Management Committee invited citizens to take photographs of community features they liked and disliked. They also conducted a Community Survey, producing 557 responses, 292 from males and 265 from females. Year-round residents were represented by 309 respondents; 248 respondents represented those who lived in the Village less than year-round. Ninetyfive percent of respondents stated that they were very satisfied or somewhat satisfied with living in Williams Bay. What they liked most were: small town atmosphere; Geneva Lake; quiet-peaceful atmosphere; natural resources; community/people/family, in that order. What they did not like most were taxes; lack of retail stores; water and sewer bills, in that order. Features which make Williams Bay unique, most often stated, were Geneva Lake, Kishwauketoe/nature; small town atmosphere, not touristy. These are but a few of the responses to 26 questions in the survey. Overall the responses have provided important guidance to preparation of this Comprehensive Plan. The Comprehensive Planning Process Pursuant to the Growth Management Committee’s recommendation, the Village retained Teska Associates, Inc. to assist the Committee in the preparation of the Comprehensive Plan, beginning in August, 1998. As scheduled, this draft Comprehensive Plan was presented to the Growth Management Committee in March, 1999. During that period, the Committee has met on 9 occasions, 7 of them with the consultant to discuss findings and recommendations. Additionally, the consultant conducted one “Public Listening Session,” to hear community input. Interviews were held with over 20 representatives of various organizations, interest groups, and governmental agencies, both within and outside the Village. Their cooperation has been excellent and should be a strong barometer of continued interest in the adoption and implementation of the Comprehensive Plan. In addition, the Growth Management Committee has coordinated its efforts with the Extraterritorial Zoning Committee, including utilization of the same study area boundaries (Figure 2). Williams Bay Comprehensive Plan - June 15, 1999 Page 5 FIGURE 2 LOCATION MAP AND STUDY AREA BOUNDARY TITLE ON MAP: PLANNING AREA Williams Bay Comprehensive Plan - June 15, 1999 Page 6 EXISTING CONDITIONS Demographic and Economic Trends Since its incorporation in 1919, the Village of Williams Bay grew at a modest rate to 1,347 year-round residents in 1960, then to 2,108 year-round residents in 1990. However, at certain times in the summer the total population of year-round and less than year-round residents may swell to 6,000 persons or more. Households with year-round occupancy have increased from 452 in 1960 to 844 in 1990, or 87 percent, a rate faster than population, symbolizing fewer persons per household in 1990. Other significant trends include:  Population within the Village has grown at a faster rate than surrounding areas between 1980 and 1990 (1,783 to 2,108 persons). In fact the total population of the surrounding four unincorporated towns actually decreased (11,622 to 11,070 persons).  It is estimated that the population of the Village and all four towns has increased since 1990, with the Village growing at a faster rate.  The number of housing units in the area far exceeds that which is related to year-round population. In fact, approximately 48 percent of all housing units in the Village are not occupied year-round (at the time of the 1990 census).  The Southeastern Wisconsin Regional Planning Commission forecasts a normal, steady population growth in the area and in the Village (to 2,876 in 2015 based on the same boundaries).  In 1990, 1,028 Village residents 16 years and older were part of the labor force. Over 50 percent work outside the Village. Over two-thirds are employed in a managerial/professional position, a technical/sales/administrative support position, or a related service position.  Aurora University GWC Campus is the Village’s largest single employer and property tax payer (although it is a non-profit organization).  Gage Marine is the single largest, albeit seasonal, private employer in the Village. Williams Bay Comprehensive Plan - June 15, 1999 Page 7 TABLE 1 POPULATION PROJECTIONS FOR WALCOMET SEWERAGE DISTRICT Area in Sq Miles Williams Bay-Geneva National-Lake Como Sewer Service Area Delavan-Delavan Lake Elkhorn Griedanus Landfill Total Est. 1985 Pop. % 1985 Pop. Planned 2010 Pop. % 2010 Pop. Planne d 2020 Pop. % 2020 Pop. 10.5 17.8 11.1 0.5 33.9 4,000 9,400 5,700 n/a 19,100* 20.9 49.2 29.9 n/a 100.0 6,200 22,200 14,300 n/a 42,700** 14.5 52.0 33.5 n/a 100.0 7,290 20,230 12,280 n/a 39,800 18.30 50.8 30.8 n/a 100.0 * Does not include seasonal population of approx. 4,200 in Delavan-Delavan Lake or approx. 3,500 in Williams Bay-Geneva National-Lake Como ** Does not include seasonal population of approx. 4,200 in Delavan-Delavan Lake or approx. 9,500 in Williams Bay-Geneva National-Lake Como Source: SEWRPC Sanitary Sewer Service Area Plan and 2020 Land Use Plan TABLE 2 WILLIAMS BAY POPULATION AND HOUSEHOLDS 1960 Population Household s (Occupied) Household s (Vacant) 1,347 452 1970 1,554 522 1980 1,763 707 1990 2,108 844 Est. 1998 2,301 937 Proj. 2000 2,407 978 Proj. 2005 2,514 1,022 Proj. 2010 2,597 1,056 Proj. 2015 2,876 1,169 n/a n/a n/a 815 n/a 931 972 1,004 1,112 Source: U.S. Census Bureau, SEWRPC, and Teska Associates (household projections) TABLE 3 POPULATION (VILLAGE, TOWN, COUNTY) Municipality V. of Williams Bay T. of Delavan T. of Geneva T. of Linn T. of Walworth Walworth County Census 1980 1,763 4,182 3,933 2,064 1,443 71,507 Census 1990 2,108 4,195 3,472 2,062 1,341 75,000 Proj. 2000 2,407 4,608 3,692 2,179 1,515 84,943 Proj. 2005 2,514 4,725 3,733 2,203 1,565 88,121 Proj. 2010 2,597 4,817 3,763 2,220 1,603 90,585 Proj. 2015 2,676 4,885 3,765 2,220 1,637 92,791 Source: WI DOA Demographic Services Center, 1993 Williams Bay Comprehensive Plan - June 15, 1999 Page 8 Natural Resources One of the distinguishing features of the Williams Bay area is the predominance of natural resources. The area contains a significant amount of primary, secondary and isolated natural environmental corridors as designated by the Southeast Wisconsin Regional Planning Commission (SEWRPC) and recorded in the 2020 Regional Land Use Plan for the region ( Figure 3). Foremost among the natural resources within the Village of Williams Bay and the extraterritorial zoning boundaries are Geneva Lake, the Bay, lake bluffs and lowlands; the Kishwauketoe Nature Conservancy, Southwick Creek, wetlands and floodplain; mature woodlands and native vegetation; and prime agricultural soils. The Kishwauketoe Nature Conservancy itself comprises approximately 230 acres including a mesic prairie, an oak forest-prairie hybrid, a low prairie/wet meadow, a wet forest and a mesic forest. Also plentiful in the hills above the lake are gravel deposits. Two quarries continue to mine these resources north of Lions Field off Route 67. Historic Resources In addition to Yerkes Observatory and the several camps illustrated in Figure 1, numerous buildings of historic merit have been constructed in the Village. Many of these remain standing today. They represent a variety of architectural styles, e.g. Victorian, Queen Anne, Prairie, Beaux Arts, California Mission, Spanish Colonia, Mediterranean, and Italianate. They echo a late 19th century character that residents cherish and that is worthy of continued respect in the 21st century. Access and Circulation Williams Bay is served by a generally adequate system of state, county, town and Village roads. However, traffic congestion can occur on Geneva Street near Elkhorn Road (Route 67) at peak times in the summer. Roadway standards and maintenance vary and deserve greater attention. None of the roads operate at or near capacity year-round. The Southeastern Wisconsin Regional Planning Commission has recently published a 2020 Transportation System Plan. It proposes that State Route 50 be widened from two to four lanes with a center (grass) median throughout the Williams Bay area, and that a new four-lane State Route 67 bypass be constructed around Williams Bay on the west. Furthermore, it recommends that the existing Route 67 through the Village become the jurisdiction of Walworth County. Walworth County has adopted this plan. The State of Wisconsin intends to construct the Route 50 improvements in the near future. However, the Route 67 bypass has not been funded or scheduled. Theater Road is of increasing importance to the Village of Williams Bay, because of recently constructed and approved residential subdivisions and the new junior/senior high school. Discussions between the Village and the Town of Delavan regarding its design standards and improvements are ongoing. Consideration is being given to pedestrian and bicycle paths within the right-of-way. Scenic roads are plentiful in the Geneva Lake area. Some have been formally designated as “Rustic Roads” by the State of Wisconsin. The Village has no formal Williams Bay Comprehensive Plan - June 15, 1999 Page 9 designation for such local roads. However, several would certainly be worthy of consideration, including Ravinia Road, Constance Boulevard, Dartmouth Road, Harris Road, and Cedar Point Drive. Land Use and Development Trends The existing land use pattern is characteristic of a small traditional village oriented to the lake and a modest central business district, and surrounded by farmland. One unique feature is the 230-acre Kishwauketoe Nature Conservancy located in the center of the Village. Recent development trends include:     Decline in the central business district Increase in single-family dwelling units Increase of parks and open spaces within the Village Expansion of institutional properties Community Facilities and Utilities Williams Bay and its surrounding towns are served by the Walworth County Metropolitan Sewerage District. Williams Bay maintains its own local sanitary sewer system which pumps its effluent to trunk sewers and a treatment plant in Delavan operated by WalCoMet. The Village has recently extended a sewer to the Mercy Walworth Medical Center, sized to accommodate additional development of presently unincorporated land along Route 67 in the vicinity of Route 50. The Village of Williams Bay operates its own potable water supply system. A new well has been constructed to supplement the existing system and improve water quality. Responsibility for stormwater management is distributed among several units, including the Village, towns, county, and Geneva Lake Environmental Agency. A Model Stormwater Management Ordinance has recently been adopted by the Board of Trustees of the Village. Of specific concern is the impact of stormwater runoff on the Kishwauketoe Conservancy and Southwick Creek in particular. The municipality has recently constructed a modern Village Hall overlooking Lions Field. Other municipal facilities include the water treatment facility, a public works facility, and a waste disposal site. Fire protection is provided by a volunteer fire department with its station on Route 67 in the central business district. The Library is owned by the Village and is located on Route 67 at the west edge of the central business district. The Williams Bay School District operates a recently constructed junior/senior high school on 80 acres along Route 67 and an elementary school on Congress Street. Both are adequate for the foreseeable future. Williams Bay Comprehensive Plan - June 15, 1999 Page 10 FIGURE 3 INSERT MAP NATURAL RESOURCES Williams Bay Comprehensive Plan - June 15, 1999 Page 11 The Village of Williams Bay has a history of providing parks and open space for its residents. Woven into the fabric of the community is a concern for preserving the natural beauty that is an essential part of the charm of Williams Bay. It was the consistent effort and financial commitment by the citizens of the Bay that saved Edgewater Park and Kishwauketoe Nature Conservancy from private development. The Village owns four other parks, including Lions Field, a park in the Baywood Heights subdivision, a park at the high school, and the athletic facility on Theater Road. However, a separate Park District was created in 1990 to provide recreational programs. Civic organizations, including the Lions Club, have provided generous support for the furnishing of the parks. PHOTOS Williams Bay Comprehensive Plan - June 15, 1999 Page 12 Williams Bay Comprehensive Plan - June 15, 1999 Page 13 VISION, GOALS AND OBJECTIVES Growth Management and Comprehensive Planning Growth management is one process by which a municipality influences its future form and function. Webster’s Dictionary defines the two terms as: GROWTH: progressive development or evolution; increase, expansion MANAGEMENT: judicious use of means to accomplish an end Comprehensive planning is one key element of growth management. The planning process is based on a continuum of personal and collective decision-making, as described in the following illustration, beginning with values and culminating with policies. Williams Bay Comprehensive Plan - June 15, 1999 Page 14 Each component of the process can be described as follows: Value - something perceived to be intrinsically desirable by an individual or group; often evidenced by feelings and actions rather than words. Goal - the stated end toward which effort is to be directed; the expression of values. Objective - a specific target established to achieve a goal. Principle - a fundamental law, doctrine, or assumption; a rule or code of conduct. Standard - minimum condition or regulation which is required to satisfy a given need. Comprehensive Plan - a declaration of intent regarding community development. Policy - a definitive course of action selected from among alternatives and in light of given conditions to guide and determine present and future decisions. The Comprehensive Plan is a declaration of intent. It is advisory and does not itself constitute a regulation. When this Plan is recommended by the Plan Commission and adopted by the Williams Bay Board of Trustees, all goals, objectives, principles, and standards therein become policy. Community Vision Based on analyses of alternative futures and directions provided by the 1997 Community Survey, the Growth Management Committee has formulated a vision of Williams Bay in the 21st century. Williams Bay will be a small, friendly community of year-round and seasonal residents, businesses, and institutions developed in harmony with Geneva Lake, natural resources, and surrounding rural areas. The community culture will be that of a retreat from the more intense lifestyles of metropolitan areas and from the more fast paced lifestyles of resort areas, enhancing leisure, opportunity for spiritual renewal, outdoor recreation, and contact with nature. Businesses, employment centers, and community services will be those which respond to the specific needs of residents and visitors, and sustain the vitality of the community as a whole. A source of community pride will be the lakefront, enhanced natural areas, and the attractive design and maintenance of all man-made improvements respectful of their environment. Williams Bay Comprehensive Plan - June 15, 1999 Page 15 Goals and Objectives The following goals and objectives support the Community Vision and establish the foundation of more detailed recommendations to follow. Ecology Goal: A balanced and mutually supporting relationship between people and nature’s life support systems; living in harmony with nature. Objectives: 1. Preserve natural beauty and biological integrity of Geneva Lake and other surface waters, e.g. streams and wetlands, including elimination of any significant point or non-point source of pollution. Respect the natural topography, soils and geology. Conserve groundwater supplies and protect underground aquifers from contamination, overuse, and misuse; encourage groundwater recharge. Maintain adequate stormwater drainage capacities of drainage basins, floodplains, and waterways. Conserve and enhance native trees and plants, and other compatible vegetative cover, especially woodlands and prairies. Nurture desirable and endangered wildlife and aquatic species, and enhance their habitats. Mitigate adverse impacts of air pollutants, pesticides and fertilizers, odors, sounds, and artificial lights. Encourage the conservation of energy in site planning and building design. 2. 3. 4. 5. 6. 7. 8. Character Goal: A friendly, small-scale, traditional community of year-round and seasonal residents with a unique sense of place amidst a rural setting. Objectives: 1. Provide an atmosphere of retreat from the more intense lifestyles of metropolitan areas and from the more fast paced lifestyles of resort areas. Preserve and enhance the Geneva Lake shoreline, the Kishwauketoe Conservancy and other key natural areas for leisure, passive recreation, education and research. 2. Williams Bay Comprehensive Plan - June 15, 1999 Page 16 3. Revitalize the central business district as the center of community life and business support for residents and visitors. Provide a variety of housing options in planned residential neighborhoods linked to each other, the central business district and leisure open spaces. Treat all roadway corridors not only as facilities for movement of vehicles, but in most cases as pedestrian facilities and in all cases as safe and attractive human environments. Encourage alternative of quarries compatible with the Village and adjacent residential areas. Encourage design excellence and sensitivity related to all man-made facilities. Encourage incremental and orderly development so as to preserve as long as possible a rural environment and productive farms surrounding the Village itself. Maintain the historic legacy of institutions, facilities and grounds related to education, research, contemplation, and dialogue which were largely responsible for the origin of Williams Bay. 4. 5. 6. 7. 8. 9. Services Goal: A coordinated system of high quality public and private services to support the health, safety and general welfare of residents, visitors, property owners and local businesses. Objectives: 1. Provide a comprehensive array of municipal policy making, administrative, maintenance, and resource services in a cost-effective manner. Provide municipal sanitary sewer, storm sewer, and water supply facilities and services to all appropriate areas within the municipality, and to selected areas outside the municipality based on sound planning policy enforceable by a pre-annexation agreement; withhold such utilities from areas designated “agricultural” in the Comprehensive Plan. Provide active and passive recreation facilities and programs to serve all ages and a wide variety of year-round interests in concert with the Park District and School District. Support a high quality system of pre-school, elementary, secondary, and higher education, including vocational, post-graduate and adult studies, and supporting library and other research facilities. Encourage a hospitable environment for the fine and performing arts. 2. 3. 4. 5. Williams Bay Comprehensive Plan - June 15, 1999 Page 17 6. Establish a program of urban forestry and landscape husbandry to maintain and nurture the “greening” of Williams Bay and its wildlife habitat. 7.Maintain a responsive and well equipped system of law enforcement and fire protection to serve the community. 8.Engage in and nurture intergovernmental communication, dialogue, agreement and delivery of services to best satisfy community needs and aspirations. Finances Goal: A viable local economy and sound municipal fiscal position. Objectives: Establish and maintain a diversified and healthy tax base for municipal governance, including the coordination of growth in tax revenue with growth in public service needs. Encourage investment in and the successful performance of appropriate business and industrial uses, as well as desirable residential development. Maintain sound standards and procedures for public fiscal management, including a municipal multi-year (3-5 year) budget. Consider means to share costs for essential services with other units of government. Where appropriate, and to the extent reasonable, encourage private responsibility for and financing of desired facilities and services. Williams Bay Comprehensive Plan - June 15, 1999 Page 18 TRANSPORTATION PLAN The Transportation Plan is a strong reflection of the Southeastern Wisconsin Regional Planning Commission 2020 Transportation Plan. However, it approaches the subject in two ways: the first is to treat transportation facilities as a functional system; the second is to treat mobility as a human experience that deserves an attractive physical setting. Functional Hierarchy Each roadway in Williams Bay and its planning area must serve a specific function within a system of roadways (Figure 4). Therefore, each roadway is classified as one of the following: Primary Highway - Provides a high degree of travel mobility, serving the through movement of traffic and providing transportation service between major subareas or through an area. Access to abutting properties should always be subordinate to the primary function of traffic movement. These roadways may include freeways, expressways, divided highways, and undivided highways. Secondary Highway (Local Arterial) - Provides for a moderate degree of travel mobility, serving the through movement of traffic and moderate levels of access to destinations within the community. Local Collector - These rural roads or streets serve primarily as connections between the arterial system and the minor road or street system, and may also provide access to abutting properties. Collectors should also provide for safe pedestrian and bicycle movement. Minor Road or Street - Provides vehicular access to abutting property, and provides for safe pedestrian and bicycle movement within developed areas. There are two Primary Highways in the Williams Bay area: U.S. Route 50 and State Route 67. Route 50 connects Lake Geneva with Delavan, and points beyond. East of Williams Bay it is constructed as a divided highway (expressway) with a wide landscaped median. West of the east entrance to Williams Bay at approximately Geneva Street, Route 50 is a two lane rural highway. The State of Wisconsin Department of Transportation intends to acquire additional right-of-way and construct a divided highway all the way to Delavan in the immediate future. Williams Bay Comprehensive Plan - June 15, 1999 Page 19 FIGURE 4 Williams Bay Comprehensive Plan - June 15, 1999 Page 20 Route 67 currently runs through the Village of Williams Bay along west Geneva Street and Elkhorn Road. The Southeastern Wisconsin Regional Planning Commission and Walworth County endorse plans to reroute the highway around the Village on the west and north to connect with Elkhorn Road north of Route 50. The Williams Bay Comprehensive Plan incorporates this concept, recognizing that a specific alignment has not been studied nor delineated, that an intergovernmental coalition of the Village, the Town of Delavan, and Walworth County will need to agree on specific plans, and that they will need to convince the State of Wisconsin DOT of the need and desirability of such a bypass in order to expedite detailed design, funding, and ultimately construction. Therefore, this is a long range concept that can only be feasible if land development does not block its path before right-of-way can be acquired. Secondary Highways (Local Arterials) follow the existing grid system of roads which already serves Williams Bay. These include Geneva Street from Route 67 on the west to Route 50 on the east, and Elkhorn Road from Geneva Street to a point north of Route 50 where it will intersect with the Route 67 bypass. Collector Roads and Streets include Theater Road, Bailey Road, North Lakeshore Drive from Fontana to Geneva Street and Cedar Point Drive from Geneva Street to Route 50. It is also recommended that Stark Street be improved, extended from Williams Street to Theater Road, and designated as a Collector Street to connect developing neighborhoods with the Village Center and Lions Field. All other streets in Williams Bay should be designated Minor Roads, serving abutting land uses, primarily residences. Roadway Character It is recommended that all roadways provide a pleasing travel experience, commensurate with the character of Williams Bay and the greater Geneva Lake area. To the extent possible, most roads should continue to exhibit a rural, countryside, or natural character. In this regard, it is essential that the widening of Route 50 respect the Kishwauketoe Nature Conservancy, even to the degree that an alternative to the standard divided highway cross-section be considered in the Williams Bay area. It is recommended that Elkhorn Road should be enhanced in visual character commensurate with its reduced status in the roadway hierarchy, and Theater Road (despite its increasing importance as a Collector) should continue to look like a country road. The same is true for Bailey Road. The concept of “Rustic Roads”, well established as a statewide system of scenic roads, is also recommended within Williams Bay. Specifically, North Lakeshore Drive, Ravinia Road, Constance Boulevard, Harris Road, and portions of Cedar Point Road should be designated as local Rustic Roads. These same roads might qualify for state designation if they were over two miles in length. Williams Bay Comprehensive Plan - June 15, 1999 Page 21 Pedestrian and Bicycle Systems The Transportation Plan recognizes the importance of walking, hiking and biking in Williams Bay. The only regional bikeway designated by the Southeastern Wisconsin Regional Planning Commission is along Palmer Road. Yet, the many roads around Geneva Lake generate substantial volumes of bicycle traffic, especially on summer weekends. While separate bikeways may not be necessary or appropriate, local roads should provide for bicycle use in a safe and attractive manner. Of even greater importance is the year-round walkability of Williams Bay. Residents and visitors to the Bay are fortunate to have the continuous walking path around Geneva Lake. In addition, the Kishwauketoe Nature Conservancy provides a myriad of nature trails that will become increasingly popular as time goes by. These form the nucleus of a more extensive pathway system that can be extended into the surrounding community. Furthermore, it is recommended that pathways be provided along Stark Street and Theater Road connecting with the Village Center, the High School, the athletic fields, and the expanded Aurora University campus on the south side of Geneva Street. Highway Corridor Design Guidelines The Route 50 and Route 67 Highway Corridors are of extraordinary importance to Williams Bay, not only to the movement of traffic around and through the Village, but to its character and its land use pattern. Figures 5, 6, 7 illustrate design guidelines for these corridors. Currently, the Route 50 Corridor is still largely undeveloped, or it incorporates largescale planned developments, such as the Interlaken Resort and Spa, and Geneva National Golf Club. Both of these developments control large sections of highway frontage and have extensive landscaping adjacent to the highway. Large parcels, such as Irish Woods and the farm at Route 67 have maintained a distinctly rural character with attractive fence lines. Across the highway from Geneva National is the Kishwauketoe Nature Conservancy. This countryside and well landscaped character of the Route 50 Corridor should be preserved and enhanced throughout. Nonresidential development may be permitted at certain locations, but should be of unique architectural character and well landscaped in a manner compatible with the overall image of the corridor. Strip commercial development should be prohibited. Curb cuts should be few in number; existing billboards should be eliminated; and future requests for billboards should be denied. The Route 67 Corridor north of Route 50 should maintain and enhance rural character, and the Route 67 Corridor south of Route 50 should be enhanced with roadside landscaping and open space preservation to soften the existing harshness of the wide highway pavement and adjacent drainage ways. Future commercial development in the southwest quadrant of the intersection of Routes 67 and 50 should be of modest scale with country style architecture and landscaping, compatible with the Belfry Theater which is a key visitor attraction. Williams Bay Comprehensive Plan - June 15, 1999 Page 22 The Route 67 Corridor east of County F should exhibit a distinctly institutional campus character. On the south side of Route 67 (Geneva Street) is the Christian League for the Handicapped, the proposed Faith Christian School, a site for the future expansion of Aurora University, and the Yerkes Observatory property. On the north side is the Williams Bay High School, its prairie nature preserve, and a new church. All of these properties will be enhanced, as will the Route 67 Corridor itself, by generous building setbacks, landscaped open spaces, screened parking facilities, strict control of signs and curb cuts, and enforcement of the current Village lighting ordinance, which is respectful of the needs of the Yerkes Observatory. Pedestrian pathways, and possibly bicycle pathways, should be provided parallel to Geneva Road. Achieving these highway corridor recommendations will require the cooperation of the Village, the Towns of Geneva, Linn and Delavan, the County of Walworth, the State of Wisconsin Department of Transportation, and adjacent property owners. The benefits will be enjoyed by all. Williams Bay Comprehensive Plan - June 15, 1999 Page 23 FIGURE 5 Williams Bay Comprehensive Plan - June 15, 1999 Page 24 FIGURE 6 Williams Bay Comprehensive Plan - June 15, 1999 Page 25 FIGURE 7 Williams Bay Comprehensive Plan - June 15, 1999 Page 26 LAND USE PLAN The recommended Land Use Plan for Williams Bay and its extraterritorial area is based on the following key principles:  Preservation of prime farmland and rural character for the foreseeable future;  Accommodation of forecasted population growth on vacant or underutilized properties abutting existing development and readily serviceable by the Village;  Preservation and enhancement of existing development;  Non-residential development contiguous to the future intersection of Routes 50 and 67. Land use categories on the Land Use Plan are, with few exceptions, the same categories described in the Southeastern Wisconsin Regional Planning Commission 2020 Plan. Agriculture Most existing farmland west of Theater Road and north of Route 50 is designated Agriculture. If these properties are to be developed, they should be developed only after other properties closer to the Village of Williams Bay have been developed. Open Space Planned open spaces in the Geneva National Golf Club should be preserved. In addition, several properties north of Routed 50 in the vicinity of the Interlaken Resort and Spa are designated Environmental Corridor, consistent with the Town of Geneva Land Use Plan. Other properties are similarly designated south of Route 50. It is recommended that the Kishwauketoe Nature Conservancy be expanded along Elkhorn Road and along Route 50. This is one of Williams Bay’s greatest assets, and these additional properties exhibit similar characteristics. In making this recommendation, it is recognized that the Conservancy is more than a passive open space: it is second only to Geneva Lake itself as a natural resource that will attract more visitors to Williams Bay for leisure and for education and research in environmental science. This is in keeping with the origins of this community and is central to its vision of the future. The designation of Private Open Space is applied to existing and future golf courses, to the Geneva National Hunt Club property, to small privately owned parks serving surrounding subdivisions, to properties along Elkhorn Road, and to properties in the vicinity of Route 50 and Theater Road. Along Elkhorn Road are two gravel quarries, which are designated for future residential development. However, portions of these properties along Elkhorn Road across from the Kishwauketoe Nature Conservancy are environmentally sensitive and are recommended for wetland restoration and stormwater runoff detention and filtration. Additional private open spaces are recommended along Route 50 and Theater Road as generous landscaped buffers associated with future industrial and business development. Williams Bay Comprehensive Plan - June 15, 1999 Page 27 Public/Institutional This category represents, for the most part, established land uses. The exceptions are properties owned by Aurora University and the Faith Christian School along Geneva Road which are planned for development in the foreseeable future. Industrial The area around the future intersection of Route 50 and the Route 67 bypass is designated Industrial, subject to a perimeter buffer strip of Private Open Space. Several properties in this area along Route 50 and Theater Road are currently occupied by low density industrial uses, and the future intersection will adversely impact desirability of adjacent properties for residential use. Commercial Recreation The Interlaken Resort and Spa is designated Commercial Recreation, as is the Geneva National property in the Town of Geneva Comprehensive Plan. However, the Williams Bay Plan more accurately distinguishes between residential, commercial, and private open space uses on the Geneva National property. Commercial This designation is applied to the Williams Bay central business district, the southwest quadrant of the Route 50 and Route 67 intersection, and several other properties already developed or zoned for such land use. Residential Undeveloped property along Theater Road adjacent to the athletic field is recommended for Medium Density residential use similar to properties north and south of it. This property is currently zoned Industry in the Village of Williams Bay, which is inappropriate based on the goals and objectives of this plan. Existing quarries north of Lions Field are designated Low Density Residential consistent with existing developed subdivisions along Elkhorn Road and Bailey Road. The reclamation of these quarries is central to the character of Williams Bay over time. Williams Bay Comprehensive Plan - June 15, 1999 Page 28 FIGURE 8 Williams Bay Comprehensive Plan - June 15, 1999 Page 29 UTILITIES AND COMMUNITY FACILITIES PLAN Sewer and Water The growth of Williams Bay is directly related to its ability to provide basic infrastructure and municipal services, especially potable water supply and wastewater collection. Wastewater treatment is provided in the City of Delavan by the Walworth County Metropolitan Sanitary Sewer District. Figure 9 illustrates the area to which the Village of Williams Bay may ultimately provide sanitary sewer service. It is generally consistent with the area described in the Southeastern Wisconsin Regional Planning Commission Sanitary Sewer Service Areas for the Walworth County Metropolitan Sewerage District, 1991 (as amended in 1995) excluding the area served by the Geneva National Golf Club Sanitary Sewer District. However, it is the policy of the Village of Williams Bay to extend its sewer system incrementally, first to accommodate the development of properties abutting existing developed areas. Extension of the sewer system to properties designated Agricultural in the Land Use Plan will occur well into the future only after more proximate properties are added to the system. Upon annexation of property to the Village, extension of water and sewer facilities will be provided if appropriate. Other extensions may be considered on a case by case basis. The Village’s water supply system is currently being upgraded in terms of capacity and in terms of the quality of treatment. It will be capable of accommodating growth anticipated by the Land Use Plan. Public Parks As already described in the Land Use Plan, the expansion of the Kishwauketoe Nature Conservancy is recommended. It is intended that all existing public parks will be maintained and enhanced. Furthermore, it is recommended that the unimproved triangular park at the intersection of East Geneva Street and Laural Street be enhanced as a “landscaped gateway” to Williams Bay. As new development occurs, neighborhood parks should be planned on land provided by the developer and designated in the subdivision plat for development. Schools The Williams Bay school system is a K-12 district. Currently, it operates two facilities: grades K-6 on Congress Street and grades 7-12 on West Geneva Street. The Junior/Senior High School is situated on 64 acres which provide for expansion for the foreseeable future. Williams Bay Comprehensive Plan - June 15, 1999 Page 30 Village Facilities Village facilities include the new Village Hall, the Public Works facility on Stark Street, the Public Library on Geneva Street, and the Fire Station at the intersection of Geneva Street and Elkhorn Road. The Village Hall and its site are considered adequate for the foreseeable future, as is the nearby Public Works facility. The Public Library is adequate for the foreseeable future. However, care should be taken to plan for its expansion in the more distant future so as not to constrain its expansion when needed. In the meantime, the library parking lot and site should be enhanced with improved landscaping and with public art, such as outdoor sculpture. The existing fire station will remain for the foreseeable future, being staffed by a volunteer corps of trained personnel. A second fire station may ultimately be required to serve growth in the northerly sector of the community. It will be necessary to relocate the existing fire department to another central site, freeing up the existing site for alternate use. Williams Bay Comprehensive Plan - June 15, 1999 Page 31 FIGURE 9 Williams Bay Comprehensive Plan - June 15, 1999 Page 32 DESIGN GUIDELINES The Village of Williams Bay is distinguished by its rural landscape, mature forests, natural resources, and small town character. These features combine to make the entire Williams Bay Planning Area an attractive and pleasant place to live. The following Design Guidelines have been compiled to assist the Village and its residents, business owners, and potential developers in maintaining the established character of the Bay as they plan for new development. Two sets of design guidelines are provided herein. First are general “Village-Wide Design Guidelines” to be applied to growth and development throughout the Williams Bay Planning Area. Second are “Design Guidelines for Planning Units.” These eleven planning units are illustrated on Figure 10. Their design guidelines address issues unique and appropriate to the environment of the planning units, but should be supplemented with the application of the Village-Wide Design Guidelines. Site Design Guidelines for Single-Family Subdivisions  Subdivision site plans should reflect overall quality of design and preservation of the rural and naturalistic environment of the Bay by maximizing natural resource preservation and open space.  Although a specific style of residential architecture does not need to be required, the architecture of new residential buildings must be of a diverse, rather than monotonous, style and of a scale that is compatible with the natural environment and surrounding neighborhoods.  Garages should be to the rear of the principal structure’s facade, with visibility of garage doors diminished by orientation or architectural treatment.  Street and pathway connections between subdivisions should be made as new development occurs.  All new residential developments should include pedestrian paths.  Perimeter fencing or walls around new subdivisions, if any, should be of a rural character; opaque fences or walls over three feet in height should be avoided.  All new utility services should be placed underground. Williams Bay Comprehensive Plan - June 15, 1999 Page 33 Site Design Guidelines for Multiple Family, Commercial, Institutional and Industrial Development  The arrangement of all functions, uses and improvements must be designed to reflect positive Bay characteristics.  Site design must sensitively incorporate existing natural features, such as forested areas, streams, hills and other topography, lake bluff, shoreline and farmland.  The size, shape, scale and location of new structures must be architecturally compatible with the existing site features.  The site design must integrate the proposed landscaping and open space into the existing natural landscape.  Areas of green space must be allotted and located to provide resource protection, transitions between adjacent sites and visual transitions between public roads, buildings, and parking lots.  Buffering of mechanical equipment, trash dumpsters, loading areas and open storage areas must be suitably accomplished in a manner which visually screens them from public view.  All new utility services should be placed underground.  Parking areas must be carefully designed to fit the site and with sensitivity to location, size and perimeter screening. Building Design Guidelines for all Building Types  Unless otherwise specified in the Planning Unit Design Guidelines, architectural style for new development is not restricted to certain architectural types, but must be compatible with the existing range of positive architectural styles within the Bay.  Building design must complement, and not dominate, the natural environment of the Bay.  All sides of a structure should receive full design consideration. A facade unrelated to the rest of the building is not in keeping with acceptable design.  All projections and mechanical details such as louvers, exposed flashing, flues, vents, gutters, and downspouts are to be recognized as architectural features and are treated to match the color of the adjacent surface or an approved complementary color.  Commercial structures must be of a modest scale. Williams Bay Comprehensive Plan - June 15, 1999 Page 34  New commercial development must avoid the look of “franchise architecture”, buildings which advertise by appearance, and the use of bold colors and materials which do not reflect the character of the Bay.  If a new building is unusually large, likely to become a landmark or gateway feature, and/or is sited in a visually prominent area, the building design must acknowledge the special impact that the project would have on the entire community.  The signage and lighting fixtures must be compatible with the architectural design of the structure. Lighting Design Guidelines  The dark skies of the Bay are a resource that must be preserved. Adherence to the existing Village regulations must be enforced.  Exterior lighting shall be designed in a manner which does not permit an adverse effect upon neighboring properties, especially Yerkes Observatory and residential property.  All exterior lighting should balance on-site needs for safety, security and aesthetic affects, with off-site impacts from public view.  All exterior lighting shall be part of the architectural and landscape design concept in color, location and type of lighting.  The height, location and direction of lighting must be designed and located in such a manner as to be shielded from the direct view of the highway user, and shielded above to reduce night sky illumination. Signage Design Guidelines for Commercial, Business and Industrial Uses  Sign lighting concepts which provide direct illumination from a shielded light source, rather than interior sign lighting is preferred.  Identification of businesses from moving cars must be balanced with the visual impact of signs on the rural landscape. Restraint in site design can aid in identification, since small simple signs identify business with less confusion, limit counterproductive sign competition and protects the quality of the landscape.  Every sign shall be designed as an integral architectural element of the building and site to which it principally relates, and where appropriate to the Bay’s character, shall be compatible with signs on adjoining premises.  A limited color palette should be established for signs, which are compatible with the general color of the building for which the sign is associated.  Signs made of wood are strongly preferred; plastic signs are discouraged. Williams Bay Comprehensive Plan - June 15, 1999 Page 35  Free standing monument signs will be restricted in elevation to no more than six feet above the grade of the lot.  Free standing signs generally require low and medium height plants around them to provide a positive design appearance.  When more than one sign is proposed for a parcel, the applicant must submit a coordinated sign plan with regard to color scheme, lettering or graphic style, lighting, location on each building or the site, signage material and sign proportions. Williams Bay Comprehensive Plan - June 15, 1999 Page 36 FIGURE 10 Williams Bay Comprehensive Plan - June 15, 1999 Page 37 Planning Unit 1-Central Business District A complete discussion of land use, design guidelines and corridor development for this area can be found in the separate Central Business District Plan. Planning Unit 2-Original Village The “Original Village” encompasses the area of pre-World War II settlement in the Bay. The area still reflects the character of the original platted Village, with its rectilinear street system, small residential lots and tree lined streets. Curbs, gutters and sidewalks exist along Geneva Street and in some parts of the residential neighborhoods to the north and south. The Original Village also contains the Elementary School south of Geneva Street. A mix of housing types has been established, including single family, duplex, small apartment buildings, and rooming houses, generally constructed prior to the 1950s. The 19th and 20th Century vernacular architecture includes mainly one- and two-story frame structures, but the most notable architectural style of this neighborhood is reflected in the Victorian single-family homes which line Geneva Street. Some of the residential structures in this area are aging or obsolete. The physical elements listed above combine to create a distinct residential character that must be respected as future growth and development occurs in the area. Although there are no significantly large tracts of land in this area remaining for multilot subdivisions, opportunities may exist for two-lot subdivisions, building additions or “tear downs” (the demolition of smaller, mature residential structures and their replacement with larger, new residential construction). The following design guidelines should be implemented to insure compatibility of any new development with the character of the Original Village. Site Design:  New development should be compatible with the existing grid of the Original Village.  On residential side streets, consistent front and side yard setbacks should be maintained. Garages should be to the rear of the principal structure’s facade, with access from an alley, where possible, or through a single curb cut otherwise.  Curb, gutter, and sidewalks should be continuous along Geneva Street, and should be extended along other streets where appropriate. Landscape Design:  Landscape design should be compatible with the predominantly wooded character of this area. Williams Bay Comprehensive Plan - June 15, 1999 Page 38 Williams Bay Comprehensive Plan - June 15, 1999 Page 39  Landscaping and signage should be enhanced and well maintained in the triangular park at the intersection of West Geneva Street and Congress Street.  Landscaping should be enhanced around the institutional use at the north end of the Planning Unit.  Healthy existing trees should be preserved on public and private property. New street trees should be installed on public property where appropriate, and trees lost to age or disease should be replaced with a minimum of 4 inch caliper disease-resistant species. Building Design:  New construction should respect and be compatible with the historic character, scale, materials, color and vernacular that exists in its vicinity. Planning Unit 3-Institutional/Campus Environment The southwestern edge of the Bay has historically been home to educational and research institutions and to religious and recreational camp facilities. As they developed, these campus environments were well integrated into the natural environment and contained significant amounts of private open space, encompassing heavily forested areas, the lake bluff and the shoreline. It is the outdoor aspects of these institutions, including Yerkes Observatory, Aurora University, Conference Point, Wesley Woods, Holiday Homes, and Norman B. Barr Camp, that, combined with the Kishwauketoe Nature Conservancy, creates a unique and sizable natural asset that is beneficial to the entire Village of Williams Bay. The built environment contains a mix of architectural styles, with the most significant structure being the Beaux Arts Yerkes Observatory and its formal grounds, perhaps the most recognized facility in the Bay. Other institutions reflect a 19th Century marriage of buildings and landscapes. A wave of residential development followed the construction of the observatory. Residential properties include a mix of Colonial Revival, Queen Anne, Tudor Revival and Craftsman style architecture. Roadways into the campus and residential areas are rustic, without curb, gutter or sidewalks, but with significant tree canopies and vegetation lining the roads. The following design guidelines should be implemented for new development within the planning unit to emulate the existing coexistence of the built and natural environments. Site Design:  As development occurs on the upland areas, steps should be taken to make sure that the view from the lake toward the shoreline and lake bluff is not disrupted or compromised. Williams Bay Comprehensive Plan - June 15, 1999 Page 40  Pathway connections should be integrated into any new development west of North Lakeshore Drive to provide links to the Yerkes Observatory and Aurora University (George Williams) main campus.  Future institutional development should maintain and emulate rural setbacks. Parking areas should be heavily landscaped and screened from public view.  Future development in upland areas should be of a planned campus nature, well setback from Geneva Street and well landscaped in a naturalistic setting to bring the natural environment out to Geneva Street.  Future development should respect site lines toward Yerkes Observatory.  Access to Geneva Street for future development should be limited. Landscape Design:  The tree canopy and indigenous vegetation along Geneva Street should be enhanced.  The stone wall at the southeast corner of Geneva Street and North Lakeshore Drive should be echoed on other parts of the intersection, and a tree canopy should be installed on the west side of North Lakeshore Drive.  The shoreline should be preserved and protected from erosion as part of any new development. Building Design:  Although a specific style of architecture does not need to be required, the architecture of new buildings must be of a style that is compatible with the natural environment, including the use of earth tones and earthy materials, with the exception of the historic white-painted architecture of the religious camps. Lighting:  Low light intensity is critical to the Yerkes Observatory, which is currently surrounded on most sides by low-level light producers such as single-family homes, camp facilities and trees. The dark skies of the Bay are a resource which must be preserved. Adherence to the existing Village regulations, originally developed with input from the Observatory astronomers, must be enforced.  A representative from Yerkes Observatory should be involved in the site plan review of any new institutional development in this planning unit to ensure that sensible and compatible lighting methods are employed. Williams Bay Comprehensive Plan - June 15, 1999 Page 41 Planning Unit 4- Recent Residential Growth Area This planning unit is made up of two distinct development patterns: the Village’s prime new residential corridor to the east of Theater Road and the existing agricultural corridor to the west. The residential corridor contains two subdivisions that are currently under construction, and one subdivision which has been approved but is unbuilt. These new residential neighborhoods contain similar site features such as curvilinear roads and drainage swales. There are currently no curbs, gutters or sidewalks in the area. Landscaping is minimal and street trees are absent. At the southeast corner of the planning unit along Geneva Street, however, is a mature residential development set back from the main road by a planted parkway and frontage road, with vehicular access achieved by way of the frontage road. The agricultural corridor contains agriculture and rural residential development patterns. The Williams Bay Junior/Senior High School is located at the south end of the planning unit. With the exception of the high school property, it is expected that the near term use of this corridor will remain agricultural. The following design guidelines should be implemented to ensure that new residential development is compatible with the existing residential subdivisions, while at the same time integrating the preferred rural character and naturalistic environment of the Bay. Site Design :  As new development occurs in the residential corridor, street connections should be made to the existing/approved subdivisions.  Existing rural roadway character must be maintained.  Subdivisions should be designed with rural fencing, but may not contain opaque fencing that obstructs the view into the residential neighborhood.  A pathway should be installed on one side of the length of Theater Road from Bailey Road to Geneva Street, allowing for pedestrian and bicycle access to the high school and the ball fields. Landscape Design:  Establish a tree canopy along Theater Road reflective of the existing character of Bailey Road.  Establish a tree canopy and other indigenous landscape features along Geneva Street.  Intensify the landscape buffer along Geneva Street in front of the high school site, and establish a landscape plan for the entire high school site. Williams Bay Comprehensive Plan - June 15, 1999 Page 42  Maintain the existing tree canopy along Bailey Road. As development occurs along Bailey Road, such development should be reviewed as a planned unit development to ensure limited disruptions, such as curb cuts, into the tree canopy.  As development occurs along Highway F, establish a tree canopy reflective of the existing character of Bailey Road. Any such development should be reviewed as a planned unit development to ensure limited disruptions, such as curb cuts, into the tree canopy. Building Design:  Although a specific style of architecture does not need to be required, the architecture of new buildings must be of a style that is compatible in scale and massing to the existing residential structures and reflective of the architectural character currently contained with the Bay.  On residential side streets, consistent front and side yard setbacks should be maintained. Garages will be to the rear of the principal structure’s facade. Lighting:  Due to proximity to Yerkes Observatory, low light intensity of future development is critical. Adherence to the existing Village regulations, originally developed with input from the Observatory astronomers, must be enforced. Planning Unit 5 - Quarry Uses This planning unit, north of the Village limits, is comprised of low density residential uses and two active quarries. There is significant topography in this area, offering views of the lake from the north and west portions of the planning unit, and from the top of Route 67. The most significant planning issue in this area concerns environmental impact. Any future development must be of an environmentally sensitive design, employing modern stormwater management techniques, repairing quarry scars and preserving the Kishwauketoe environment. The following design guidelines should be implemented to enforce environmental sensitivity. Site Design:  Any redevelopment in this area must include environmentally sensitive design principles. The health of the natural environment should be protected by serving all land uses with adequate stormwater control. Site plans should be designed to preserve views to the lake, preserve heavily wooded areas, and minimize impact to floodplains, wetlands, and groundwater. Williams Bay Comprehensive Plan - June 15, 1999 Page 43  The reclamation of the quarries and any other residential redevelopment should be undertaken as a planned unit development, including cluster housing and open space.  Respect the existing view corridors of the lake from southbound Route 67. New development should be designed so as to create view corridors, as well.  Along Route 67, limit access points and maintain or establish a naturalistic setting: setbacks to provide open spaces; enhanced landscaping and landscape buffers; and a tree canopy lining the highway. This enhancement will continue south of Highway 50 to Hillview Road.  Any new commercial uses adjacent to the Belfry Theater should be developed as a planned commercial area, integrating the Theater site, allowing for shared parking among uses, and limiting access points.  A rural fence line should be established along major roadways to unify the area.  Pedestrian pathways should be made linking park land on the future reclaimed quarry sites to both the School District athletic field (in Planning Unit 4) and to the Kishwauketoe Nature Conservancy (in Planning Unit 11). Landscape Design:  Maintain or establish a naturalistic setting for properties along Route 67. Setbacks should be designed to provide open spaces and an opportunity for naturalistic landscaping, enhanced with the establishment of a tree canopy.  Quarry reclamation should include significant landscaping.  Public parks, as well as significant private open spaces, will be included in the reclamation of the quarries.  Landscape plans should reflect and be respectful of the natural environment of the adjacent Kishwauketoe Nature Conservancy and Southwick Creek (both in Planning Unit 11).  In an effort to further enhance and protect the resources of the Kishwauketoe (Planning Unit 11), expansion of the Kishwauketoe to the north in Planning Unit 5, will be reviewed and supported as such land or the resources to purchase the land becomes available. Building Design:  Future commercial development to be compatible with the scale and architecture of the Theater.  Although a specific style of residential architecture does not need to be required, the architecture of new residential buildings must be of a style and scale that is compatible with the environment. Williams Bay Comprehensive Plan - June 15, 1999 Page 44 Planning Unit 6 - Eastern Village Gateway This planning unit contains the eastern entrance to the Bay, a small business district, the early settlement of Cedar Point, and new single- and multiple family developments. The Geneva Street entrance is not well marked, but its heavily forested setting introduces the naturalistic environment of the Bay. As it winds westward toward the Bay, Geneva Street is rural and tree-lined, with individual, small scale commercial businesses located to the east and south. Newer single-family and condominium developments have been constructed on the north side of Geneva Street. Cedar Point, located south of Geneva Street on the eastern shore of the Bay, is another predominantly pre-World War II development, platted shortly after incorporation of the Village. A neighborhood of single-family homes, Cedar Point was developed with respect to the topography and forested environment. Private open space was established along the shore line and lake bluff to create recreational opportunities and view corridors to the Lake. Most of the initial homes were smallscale one- and two-story cottages in a range of architectural styles. Front yard setbacks are shallow but uniform, with well-landscaped yards and trees lining the roads. The eastern portion of the area along Geneva Lake was developed with larger estate properties. The roads throughout the area are rural in character, without curb, gutter, or sidewalk. The physical elements listed above combine to create a distinct residential character that must be preserved and respected as future growth and development occurs in the area. Recent residential “tear downs” and building additions have replaced smaller cottages with larger, modern homes. The following design guidelines should be implemented to insure compatibility with the existing development pattern and building scale, along with sensitivity to the forested and open space areas, lake bluff and shoreline. Site Design:  Develop planned, small scale, non-intrusive commercial spaces inside Geneva Street entrance, with access from Route 50 prohibited.  On residential side streets, consistent front and side yard setbacks should be maintained. Garages will be to the rear of the principal structure’s facade. Landscape Design:  Improve the eastern gateway to the Bay at Geneva Street and Route 50 by adding lighting, directional signage, and landscaping, while preserving the wooded character.  Existing rural roadway character must be maintained.  The wooded character of Route 50 will be preserved as part of any new development. Williams Bay Comprehensive Plan - June 15, 1999 Page 45  The open space triangle to the east of the Geneva Street/Laurel Street intersection should be improved with naturalistic landscaping, along with modest signage.  A rural fence line will be established along major roadways to unify the area. Building Design:  Although a specific style of residential architecture does not need to be required, the architecture of new single-family structures within the Cedar Point development must be of a style that is compatible with the scale and architectural types of the established Cedar Point character and respectful of the natural environment.  New residential development in other locations should also be respectful of the scale and vernacular architecture in adjacent neighborhoods.  Commercial development should be of a modest scale and of “country” or “rural village” character, not contemporary strip character. Planning Unit 7 - Developed Unincorporated Area This planning unit contains established residential communities, including the Knollwood neighborhood and large estates along Route 50 and the lake shore. The area is also characterized by upland forested areas, lake bluff and shoreline. The roads throughout the area are rural in character, without curb, gutter, or sidewalk. The estate and some agricultural properties may provide an opportunity for future residential redevelopment. As this area is outside of the corporate limits of the Village, the residential neighborhoods are not served by Village sewer. The following design guidelines should be implemented for new development within the planning unit to emulate the existing coexistence of the built and natural environments. Site Design:  Any development of the existing large estates should be done as a planned unit development employing conservation design techniques to promote the preservation of open space and environmentally sensitive features.  As residential development potential still exists throughout the area, the Village should consider whether to annex any tracts of land, and upon annexation of property, extension of water and sewer facilities will be provided.  Future development and improvements should not block or detract from the views of Yerkes Observatory from Route 50 west of Sunset Blvd.  On residential side streets, consistent front and side yard setbacks should be maintained. Garages will be to the rear of the principal structure. Williams Bay Comprehensive Plan - June 15, 1999 Page 46 Landscape Design:  Preserve wooded character as it exists along Route 50.  A rural fence line should be established along Route 50 to unify the area. Building Design:  Although a specific style of residential architecture does not need to be required, the architecture of new residential structures must be of a style that is compatible with the existing scale and architectural character in adjacent neighborhoods. Planning Unit 8 - Resort Area This planning unit contains two established resorts within the Geneva Lakes region, Geneva National and Interlaken. The area is also characterized by its naturalistic setting, including heavily wooded areas, agricultural open space, and the Lake Como shoreline. Portions of Geneva National remain under construction, with future phases to occur along both Route 50 and Palmer Road. The new roadways of Geneva National include curb and gutter, while older roads in the residential neighborhoods at the east end of the planning unit are rural in character, without curbs, gutters, or sidewalks. The following design guidelines should be enforced to ensure compatibility between the existing natural and built environments and any new development. Site Design:  All new residential and mixed use developments should be designed as a planned unit development, to ensure overall quality of design and preservation of the rural environment by maximizing open space and preserving scenic views. Wherever possible, agricultural uses should be maintained.  Along Route 50, limit access points and maintain or establish a naturalistic setting: setbacks to provide open spaces; enhanced landscaping and landscape buffers; and preservation and enhancement of the existing tree canopy. Landscape Design:  A rural fence line should be established along major roadways to unify the area.  Preserve agricultural/open space character north of Route 50 between Interlaken and Geneva National.  Preserve the overall wooded character of Route 50. Building Design: Williams Bay Comprehensive Plan - June 15, 1999 Page 47  Design any future commercial development at Geneva National along Route 50 to match the scale and the details of the existing Hunt Club. Planning Unit 9 - Future Growth Area This planning unit currently contains predominantly agricultural and rural residential uses, most characterized by an equestrian and open space character. The area contains some free standing industrial, business and institutional uses as well, including the Mercy Walworth Medical Clinic and a cemetery. The first planned residential subdivision in the planning unit is Geneva West. The planning unit is an upland area, containing primarily agricultural soils. With many potentially developable parcels, development pressure is already occurring in this planning unit, due to great visibility from and access to Routes 67 and 50, Palmer Road/Town Hall Road, Highway F and Bailey Road. Additionally, the area is proximate to the City of Elkhorn and Interstate 43, and is adjacent to the Geneva National Golf Course and residential community, which will also be experiencing continued development in the near-term. The following design guidelines should be implemented to enhance and preserve the existing wooded, rural, equestrian and agricultural environments of the planning unit. Site Design:  Any site plan designed for any future development of the property at the northeast corner of the Route 50/67 intersection must preserve and perpetuate the existing farm and equestrian character.  All new residential and mixed use developments should be designed as a planned unit development, to ensure overall quality of design and preservation of the rural environment by maximizing open space and preserving scenic views.  All new development, whether residential, mixed use or non-residential, should be developed at a low density and small scale compatible with the character of the existing built environment of the Bay.  Any new commercial uses at the southwest corner of the Route 50/67 intersection should be developed as a planned commercial area, allowing for shared parking among uses and limiting access points.  Ingress and egress to any commercial development should be restricted to new access roads from Route 50. Williams Bay Comprehensive Plan - June 15, 1999 Page 48  All new residential, mixed use and non-residential development should be located beyond a significant setback and contain well-landscaped areas between structures and roadways, thus maximizing open space and preserving scenic views.  A rural fence line should be established along Routes 50 and 67 to unify the area. Landscape Design:  Maintain and integrate existing open spaces, rural landscapes and agricultural uses into new landscape design.  Improve landscaping of the Route 50 and Route 67 intersection area.  Enhance buffering along the south and east frontages of the cemetery. Building Design:  All architecture should be of a modest scale and rural, countryside character. Planning Unit 10 - Agricultural/Rural Zone The existing use of this planning unit is predominantly agricultural and rural residential. The near-term use is likely to remain as such, although the western portion of this area is located adjacent to residentially developed areas in the Town of Delavan. The Town of Delavan Master Plan calls for the long term use of most of this area with residential uses, and some limited commercial uses at the intersection of Town Hall Road and Highway F. The following design guidelines should be implemented to enhance and preserve the existing rural and agricultural environment of the planning unit. Site Design:  Any development which does occur over the long-term should be done as a planned unit development to ensure overall quality of design and preservation of the rural environment by maximizing open space and preserving scenic views.  All new development should be located beyond a significant setback and contain well-landscaped areas between structures and roadways, thus maximizing rural open space and preserving scenic views.  The rural roadway character should be maintained and the existing tree canopy along Bailey Road continued and emulated along Highway F. Building Design:  All architecture should be of a modest scale and rural, countryside character. Williams Bay Comprehensive Plan - June 15, 1999 Page 49 Planning Unit 11 - The Kishwauketoe Nature Conservancy This area is predominantly comprised of the Kishwauketoe Nature Conservancy, but also includes the Calvary Community Church property at Route 50 and Harris Road. The Kishwauketoe Nature Conservancy area should be maintained and enhanced in conformity with the adopted 1992 Master Plan, as amended. Recommendations are as follows: Site Design:  Improve visibility and safety at Calvary Church/Route 50 and Harris Road/Route 50 intersections. Landscape Design:  In an effort to further enhance and protect the resources of the Kishwauketoe Nature Conservancy (Planning Unit 11), expansion of the Kishwauketoe to the north in Planning Unit 5 will be reviewed and supported as such land or the resources to purchase the land becomes available.  In an effort to further enhance and protect the resources of the Kishwauketoe Nature Conservancy, expansion of the Kishwauketoe to the east toward Route 50 will be reviewed and supported as such land or the resources to purchase the land becomes available. Williams Bay Comprehensive Plan - June 15, 1999 Page 50 CENTRAL BUSINESS DISTRICT Virtually every community in America can benefit from an attractive and viable central business district, whether it is a village, town or major city. Central business districts, or downtowns, were the original “mixed use developments” in our traditional communities. CBDs are places in which people live, work, shop, are entertained, enjoy leisure, meet friends, give and receive civic services. CBDs are the ultimate measure of the quality of a balanced community. This is the goal for the Williams Bay central business district. No previous comprehensive plan has paid adequate attention to the Williams Bay CBD, nor has there ever been a specific plan prepared for this area, as there has been for the lakefront and for the Kishwauketoe Nature Conservancy. Yet, they are all interrelated and together form the very center of the community. Perhaps because of the CBD’s modest size there is no organization of business persons or property owners: no Chamber of Commerce or downtown development corporation, or even a Village-wide economic development commission to be its champion. No wonder that it has enjoyed better times, that it is not competitive with larger business districts and newer shopping centers, that it appears to many persons to be “obsolete.” The good news is that it is centrally located, that its market area is growing, that it is home to several fine businesses, that it offers excellent business opportunities, and that at no time in the past four decades has the American public more strongly and actively supported downtown revitalization than it does today. Fortunately, this is no passing fancy, but a return to some basic community values. Furthermore, traditional downtowns have become significant attractions for out of town visitors, especially when they are linked with recreational and cultural features as in the case of Williams Bay. Therefore, this is a time to take advantage of in a manner that enhances the entire community. Activity Mix Downtowns thrive on a mix of business and non-business activities that are uniquely suited to that particular location. Of principal importance to traditional downtowns are compatible governmental, civic and recreational activities. Williams Bay is blessed with several of these, including the Village Hall, the Public Library, the U.S. Post Office, Edgewater and Lakefront Parks, Lions Field, the Kishwauketoe Nature Conservancy, and the Fire Station where summer events are often hosted. Williams Bay Comprehensive Plan - June 15, 1999 Page 51 Williams Bay Comprehensive Plan - June 15, 1999 Page 52 Approximately 66 businesses are located downtown, more than meet the eye. They represent the following categories: Clothing and Accessories Convenience Food and Liquor Food Service Gifts/Specialty Retail Other Retail Automotive Building Material and Supplies Marine Craft Sales, Service, Storage Banking Services Personal Services Business Services Real Estate and Insurance Other Services Health Care Storage Hotel/Motel Unidentified by Category 1 1 8 4 1 5 6 2 2 5 3 2 4 3 6 3 10 66 The strongest single category is Food Service, represented by eight businesses providing a broad selection, from upscale sitdown restaurants to cafes and fast food establishments, but no drive-throughs or national chains. Several categories are under represented, as noted by local residents in the 1997 survey, including Food Store, Hardware, Pharmacy, and Apparel. One of the challenges to each and every business, and to recruiting new businesses, is the fluctuating market. Whereas the community’s resident population may exceed 6,000 persons at certain times in the summer, it may slip to under 3,000 throughout much of the winter. Nevertheless, the prospect for the future is an increasing yearround population in and surrounding the community. Furthermore, the Williams Bay Land Use Plan clearly endorses the central business district as the preferred location for expanded local businesses and restricts the development of new business districts to a modest area at the southwest quadrant of the Route 50 and 67 intersection. The following page summarizes the CBD’s strengths and weaknesses. Overcoming weaknesses and capitalizing on strengths requires a community consensus on the overall goal and supporting objectives for the CBD, and a commitment to achieve them. Williams Bay Comprehensive Plan - June 15, 1999 Page 53 WILLIAMS BAY CENTRAL BUSINESS DISTRICT STRENGTHS WEAKNESSES Location and Market On Route 67 In center of Village Summer market Untapped potentials Distance from Route 50 Modest population base and growth trend Winter market Internalized institutions Flood plain east of CBD Land Use and Business Mix Recreational activities Eating and drinking places Nearby residential areas Library Inadequate critical mass Lacking retail anchors Modest office and service base Dispersed governmental and institutional functions Physical Arrangement Visibility on Route 67 Proximity to waterfront and Kishwauketoe Nature Conservancy Restaurants at center of CBD Dispersal; lack of cohesiveness No central place Street and block layout Lack of suitable sites Vacant properties Soil conditions limit building Access, Circulation, and Parking Approach Routes Limited circulation options Street connections to growth areas Overabundance of curb cuts Limited and disorganized parking for peak demand Inadequate pedestrian system; narrow sidewalks, if any Design and Appearance Scale of development Selected attractive buildings Open spaces Eclectic design; lacking harmony Age and condition of buildings Unimproved parking and loading areas Inadequate pedestrian amenities Obsolete signage Limited landscaping and “flair” Utility poles and lines Organization and Marketing Certain entrepreneurs  No organization No plan or vision Inadequate marketing and recruitment Perceived governmental obstacles Williams Bay Comprehensive Plan - June 15, 1999 Page 54 Goals and Objectives The overall goal is: A central business district developed primarily as a resident service center and visitor attraction consistent with desired character and image of the entire Village. Five objectives that support that goal are:  Expand opportunities for local residents - shopping, services, employment, and business development;  Strengthen economic vitality - productivity, financial performance, and fiscal health;  Enhance sense of place - an attractive and memorable visual image;  Create residential harmony - appealing living environments within and/or adjacent to the business district;  Encourage spirit of community - that which brings people together to share positive experiences. Expand Opportunities for Local Residents Williams Bay has chosen not to become a major commercial resort, but rather a more balanced “village” of year-round and “less than year-round” residents which also welcomes visitors attracted by its unique educational, cultural and recreational assets. Serving their needs and expanding their opportunities within the Village, rather than at great distance, outside the Village, deserves high priority. A suggested strategy for achieving this objective is:  Maintain and enhance local governmental, civic and recreational activities, i.e. Village Hall, Library, U.S. Post Office, Lakefront Park, Kishwauketoe Nature Conservancy, Lions Field.  Retain and expand the variety of businesses serving the day-to-day needs of local residents, e.g. food, pharmacy, hardware, books and periodicals, apparel, gifts, home furnishings, financial services, personal services, professional services, etc.  Provide new and rehabilitated building space and technical assistance for residents who desire to establish or relocate a business in Williams Bay.  Expand the availability of jobs for local residents, including youths and seniors. Williams Bay Comprehensive Plan - June 15, 1999 Page 55 Strengthen Economic Vitality Several existing properties are for sale, several buildings exhibit vacancies, and some businesses are marginal. Not only are they at risk, but so to is the Village’s tax base. Overall, the central business district represents the economic base of the community, unlike other communities which have industrial parks, shopping centers, office headquarters, etc. Without a sound economic base, the cost of local government falls on the shoulders of residential property owners. To accomplish this objective requires expanding in a compatible manner the mix of activities in the CBD to include those additional activities that will appeal to visitors as well as local residents. This strategy might include:  Establish a multi-purpose visitor center, focusing on the Kishwauketoe Nature Conservancy and the community’s environmental resources, but also incorporating information from Yerkes Observatory, Aurora University, historic sites and buildings, and other key aspects of the Village’s “culture”;  Establish the CBD as a major year-round focal point for dining in the greater Geneva Lake area, including limited forms of entertainment;  Expand the year-round customer base by encouraging bed and breakfast homes, and small country inns within and adjacent to the CBD;  Attract residents, businesses, and activities to the community and to the CBD which focus on the fine and performing arts, crafts and antiques, music, nature and the environment, and outdoor recreation;  Provide for other specialty businesses, seasonal businesses, and more special events which are compatible with the above mix. Two words are of fundamental importance to the vitality of a business district. The first is “compatibility”. It is defined as “the ability to exist in harmony”. It is a baseline condition for any successful relationship between land uses. The second is of even greater importance. It is “synergism”. This is defined as “cooperative action of discrete agents such that the total effect is greater than the sum of the effects taken independently.” In the retail industry it is referred to as “the power of cumulative attraction.” Herein lies the secret of successful downtowns. The Williams Bay CBD exhibits a reasonable degree of compatibility; incompatibilities exist but are somewhat benign. However, there is little synergism. Certainly the critical mass of the CBD is modest and the mix of uses is deficient. However, these factors are aggravated by the physical arrangement of land uses. First, the CBD is more akin to an elongated commercial strip and highway crossroads than a traditional downtown with a square or village green. Furthermore, the blocks between Elkhorn Road and Walworth Avenue are so narrow as to create double frontages and provide sites too small for many possible uses. There is no readily identifiable central place, although the cluster of five eating establishments near the intersection of Geneva Street and Elkhorn are of significance. Another positive factor is that the business district has edges well defined by healthy residential Page 56 Williams Bay Comprehensive Plan - June 15, 1999 neighborhoods and public activity generators. A view of Geneva Lake is a key asset. There are numerous, even exciting opportunities for redevelopment, given appropriate incentives for private investment. However, such projects must be based on an overall plan or existing conditions are likely to be exacerbated. The CBD Development Concept (Figure 11) is based on several well-tested principles: Compactness, Central Place, and Functional Districts. The land area devoted to the CBD should not be increased, although the boundaries should be realigned. For example, a significant area east of Elkhorn Road, currently zoned for business, should be acquired by the Village to expand the Kishwauketoe Nature Conservancy. In turn, the west boundary of the CBD should be extended to Elmhurst Court, and certain properties along Stark Street, currently zoned for industry, should be added to the CBD. The result will be not a larger CBD, but a better configured CBD. Infill development over time within these boundaries will enhance compactness. Each sub-area within the CBD should have a specific land use function and should be planned and designed accordingly. Around the central place and incorporating its activities should be the primary mixed use area, emphasizing banks, specialty retail shops, restaurants and other pedestrian oriented businesses. Small country inns should be welcomed in this area to attract year-round visitors desiring a small town retreat. Offices and residences are also welcomed above the ground floor to enhance the customer base for downtown businesses and to generate human activity. Outside this area are other functional areas that might emphasize offices, services, multi-family residences, and waterfront activities. At the north end of downtown, in the vicinity of Lions Field and the Village Hall, should be an area designated for community convenience retail and service businesses. To attract businesses to this location which are desired by local residents, e.g. a food store, will require the extension of Stark Street to Theater Road to enhance accessibility by auto, bicycle, or foot from new residential subdivisions. Enhance Sense of Place The Williams Bay CBD must inspire a unique and positive reaction from residents and visitors alike. Its visual image and appearance should evoke pleasant experiences and memories, and should motivate repeat visits. The central business district must be “user friendly,” whether the user is arriving in a vehicle or moving about on foot. In order to compete in today’s world, in order to meet community expectations, it is essential that every visit to downtown be a positive experience. It is not just the location, product or service that causes a person to visit, work, or invest in downtown, but the entire experience. Americans have become very discerning and “want it all.” Business districts must provide it. The community deserves it. Williams Bay Comprehensive Plan - June 15, 1999 Page 57 Williams Bay Comprehensive Plan - June 15, 1999 Page 58 Gateways are the first point of contact with downtown. Such gateways exist on the east where Southwick Creek passes under Geneva Street, on the west on Geneva Street near Williams Street, and on the north on Elkhorn Road near Stark Street. The approaches to each gateway should be attractive, and each gateway should be treated in a special, but coordinated, manner to welcome the visitor, to establish a sense of arrival, and to orient the visitor to his or her final destination. The Central Place recommended in the CBD Development Concept deserves the highest level of design. It must be clearly articulated by a higher density concentration of synergistic land uses, 2 or 3 story buildings, and a public open space of modest size, such as a village green, square or plaza. The area should become the most active area in the downtown, and should exhibit a strong visual sense of place. It should be located along Geneva Street in the vicinity of Walworth Avenue and Elkhorn Road. The location and design of the public open space may be initiated by the Village, or may be initiated by a private party as an element of a redevelopment project, approved by the Village. Roadways and their streetscape, buildings, and the public open space must not only be user friendly in a functional sense, but must convey a vitality and cohesive image which distinguishes Williams Bay from all other communities and imprints a worthy memory on the user’s mind. It must be a place where the user desires to linger, where he or she meets friends, and where there is also a “wow” factor, in good taste of course. Pedestrian facilities throughout downtown must be improved and enhanced (Figures 12 and 13). Walworth Avenue should be the primary pedestrian street. Sidewalks must be eventually available on both sides of the street from Elm Street to Stark Street. Between Elm Street and Olive Street they deserve special treatment, including widening, landscaping, and special pedestrian lighting. Overhead utility lines should be buried where ever possible, vehicular curb cuts should be reduced in number, parking lots and waste receptacles should be screened, and building facades should be enhanced. Diagonal parking should be replaced by parallel parking and by off-street public parking to permit sidewalk widening and parkway landscaping. The change of grade on Geneva Street presents a challenge to the pedestrian, especially children, elderly and handicapped, because of sidewalks with stairways. This condition needs more detailed study, but must be corrected. The result should be improved accessibility and improved appearance. The expanded Kishwauketoe Nature Conservancy offers exceptional opportunities for additional pathways on the east side of Elkhorn Road which link the lakefront and the Central Place to the nature preserve itself. Buildings should be of modest size, and the design of larger buildings should minimize their bulk. On the other hand, 2-3 story buildings and mixed-use buildings should be encouraged to enhance the critical mass of downtown. Taller buildings should be located closer to the Central Place, and lower buildings should be located in the northerly part of the CBD. Williams Bay Comprehensive Plan - June 15, 1999 Page 59 Williams Bay Comprehensive Plan - June 15, 1999 Page 60 Williams Bay Comprehensive Plan - June 15, 1999 Page 61 No single architectural style need be endorsed. However, buildings of historic merit should be well maintained and rehabilitated, and all new construction should be compatible with the best examples of architecture in their immediate vicinity. Compatibility includes style, which can vary, if other features such as bulk, materials color, orientation, landscaping and signage are compatible. Adequate and appropriate landscaping outside the street rights-of-way is absolutely essential. Most important is the screening of off-street parking and service areas, and of trash receptacles. Landscaping along Elkhorn Street should reflect, to some extent, the plant materials found in the Kishwauketoe Nature Conservancy. Landscaping also includes special features, such as the use of water, furniture, and sculpture. In fact, Williams Bay should initiate a special program to encourage art in visible public and private places, especially light-hearted, humanistic and naturalistic sculpture (Figure 14). Signage must be well controlled. The Village itself should set the example with enhanced public signage, including gateway signs, street signs, traffic and parking signs, and other appropriate information signs. Create Residential Harmony One of the strongest current trends in the U.S. is the desire to live in or near the downtown once again, as was the case prior to World War II in most communities. This trend is mutually beneficial to residents and downtown businesses alike, but is successful only if the two are sensitively coordinated. The strategy recommended for Williams Bay is:  Conserve nearby residential neighborhoods and protect them from the potential adverse impacts of business activity;  Provide new housing opportunities within and at the edge of the CBD. These can often be incorporated into new mixed-use development, e.g. businesses on the ground floor and residences above. Living downtown creates a built-in customer base, seven days a week, 15-18 hours per day. In return, residents enjoy conveniences not available to them in more remote neighborhoods. Encourage Spirit of Community The CBD is the community’s “common ground.” It is where residents can meet other residents and share common experiences, whether they be a simple greeting on the street, a cup of coffee and conversation, a special event, a civic project, participation in governance, etc. Successful downtowns enhance one’s spirit and that of an entire community. Williams Bay Comprehensive Plan - June 15, 1999 Page 62 The strategy for achieving this objective is twofold:  Involve local residents and business persons alike in the process of revitalizing the CBD, and  Keep them involved  Establish a Village body, e.g. an Economic Development Committee, to lead and oversee the CBD revitalization process. Revitalization requires a dedicated and persistent partnership between the public and private sectors of the community, between those who own property in the CBD and those who own property in the neighborhoods, between those who live in town yearround and those who live in town part time. Working together, sharing success, and experiencing pride in the CBD contributes significantly to the spirit of community which is desired in Williams Bay. Implementation Implementation of CBD recommendations benefits from strong national and regional economies, but is more likely to be dependent on personal leadership, local organizations and their missions, marketing, business retention and recruitment, and adequate funding. Specific recommendations for each of these topics are contained in the Appendix. Williams Bay Comprehensive Plan - June 15, 1999 Page 63 Williams Bay Comprehensive Plan - June 15, 1999 Page 64 APPENDIX Williams Bay Comprehensive Plan - June 15, 1999 Page 65 GROWTH MANAGEMENT The Basic Strategy The basic foundation of growth management is the Comprehensive Plan. However, the Comprehensive Plan is not a self-fulfilling prophesy. It must be supplemented by a wide variety of public and private initiatives in concert with one another. Growth (or change) embodies a variety of factors which can be combined into many different development scenarios. The following page summarizes these factors. In response to or in anticipation of these possible scenarios of future development in the Village and its extraterritorial area, public and private decision makers need an arsenal of techniques with which to manage growth (or change). These include, but are not limited to:         information and mapping systems development codes and ordinances urban services and infrastructure land acquisition resources intergovernmental agreements civic programs taxation policies incentives For each scenario, decision-makers must employ the most effective technique or combination of techniques to accomplish the common good, e.g. implement the Comprehensive Plan. This is the basic strategy of growth management. Codes and Ordinances In addition to preparation of this Comprehensive Plan, the Village of Williams Bay also requested Teska Associates, Inc. to review existing local codes and ordinances to determine their consistency with the Comprehensive Plan. The results of this review have been transmitted to the Growth Management Committee under separate cover and discussed at one public meeting in the series of such meetings held to date. Key findings are summarized herein. The set of existing codes and ordinances utilized by the Village includes:  the Zoning Ordinance  the Land Subdivision Ordinance  an Ordinance Amending the Building Code for Purposes of New Development Storm Water Management  an Ordinance Providing for Interim Extraterritorial Zoning Williams Bay Comprehensive Plan - June 15, 1999 Page 66 GROWTH FACTORS RATE OF GROWTH Population: Total and by Sector Households: Total and by Sector Employment: Total and by Category Activity: By Type Land Consumption TYPE OF GROWTH New Development, Redevelopment, or Adaptive Reuse Residential: SFD, SFA, MF (Rental/Condo), Group; Year-round or seasonal Business: Convenience or Destination; Retail or other Industry: Mining, Manufacturing, Warehousing or other Institutional: Conference, Educational, Spiritual, Cultural Recreational: Outdoor or Indoor, Individual or team LOCATION OF GROWTH Within Village or Outside Village Served by Public Sewer and Water or not Highway Oriented or Pedestrian Oriented High Visibility or Low Visibility Synergy and Compatibility QUALITY OF GROWTH Character: Urban, Suburban, Rural Level of Service Price Point Roadway Design Site Design Architecture Amenities Relation to Neighbors IMPACTS OF GROWTH Environmental Traffic Municipal Services and Finances School Services and Finances Property Values Precedent Williams Bay Comprehensive Plan - June 15, 1999 Page 67 These codes and ordinances are basically sound. However, they do not adequately reflect recommendations of the Comprehensive Plan nor do they adequately guide new development of vacant lands to the degree called for in the Comprehensive Plan. The Zoning Ordinance can benefit from several amendments, including:  the permitted use lists and development standards of each existing zoning district deserve detailed review;  consideration should be given to additional zoning districts: e.g. a low density multiple-family residential district; and a new “gateway” business district;  expansion of site plan review and architectural control guidelines (sec. 18.1000), or adoption of a separate Appearance Code; especially as applied to business districts;  numerous amendments to the Zoning Map, including a review of the P-1 Park District as currently mapped;  review of and alternatives to existing off street parking requirements in the business districts. The Land Division Ordinance can also benefit from several amendments, including:  a distinction between minor and major divisions of land and the procedures for reviewing them;  review of street and pedestrian way design standards (Sec. 17.0703) with greater attention given to pedestrian facilities;  enhanced landscaping standards for street rights-of-way, including larger street trees; and  consideration of a new, and separate Tree Preservation Ordinance. The newly adopted (1998) Storm Water Management Ordinance was an excellent and timely action. This ordinance can serve the community very effectively. Interim Extraterritorial Zoning Ordinance This ordinance, adopted on March 7, 1997, provides an intergovernmental mechanism by which the Village can influence the zoning of unincorporated property outside its borders, but within 1 ½ miles. The ordinance, originally effective for two years, has been extended for one more year. Williams Bay Comprehensive Plan - June 15, 1999 Page 68 Extraterritorial Zoning Committees have been established with the Town of Walworth, the Town of Geneva, the Town of Delavan, and the Town of Linn. The Towns of Delavan and Geneva, which include most of the extraterritorial area, both have comprehensive plans. Discussions have been proceeding for almost two years, during which time the Village of Williams Bay has lacked a comprehensive plan. The intergovernmental process is laudable, as is the goal of harmony between units of local government. It is now time to factor into these discussions the recommendations of the Growth Management Committee, based on the updated Comprehensive Plan. Of course, of greatest concern to the Village is zoning of unincorporated property abutting Village boundaries. Of lesser concern, and of greater concern to the nearby towns is the zoning of property at the periphery of the extraterritorial area. It is important to distinguish between comprehensive planning and zoning, and between the perspective of the Growth Management Committee and that of the Extraterritorial Zoning Committee. Comprehensive Planning is advisory and has a long range perspective. Zoning is regulatory and has a shorter range perspective, including the preservation of existing conditions until such time as trends suggest a change in zoning to implement the Comprehensive Plan. Coordination between the Growth Management Committee, the Extraterritorial Zoning Committee, and the Plan Commission will assure the Board of Trustees of wise advice. Williams Bay Comprehensive Plan - June 15, 1999 Page 69 IMPLEMENTATION OF CBD RECOMMENDATIONS Central business district goals, objectives, and plans are not self-fulfilling prophesies. Achieving them requires a concerted effort over extended periods of time, in fact, dayin and day-out, just as one would nurture a successful business. The following are recommendations for implementing the Williams Bay CBD goals, objectives and plans. Roles and Responsibilities The revitalization of business districts requires a “partnership” between the public and private sectors. Neither can accomplish the task alone. In many cases the “partnership” takes the form of a joint not-for-profit corporation dedicated solely to this task on a day-in/day-out basis. The concept of a “partnership” is also valid in Williams Bay. However, at this smaller than usual scale the concept requires a much more personal and intimate cooperation of all potential beneficiaries throughout the central business district and the resident community. Much of the essential talent and leadership exists in the community, but has not been activated for this task. Up to this point no single person, organization, or governmental agency has assumed overall responsibility. By creating a Growth Management Committee, by conducting a community survey, and by preparing this Comprehensive Plan, the municipality has begun to fill this void. For the foreseeable future, the primary responsibility should remain with the Village, specifically its Board of Trustees. The Board will continue to rely on the Growth Management Committee and the Planning Commission for key inputs. However, because their roles are quite distinct and focus on the municipality at large, including its extraterritorial area, it is recommended that the Board of Trustees establish an Economic Development Commission (or similar body) to focus specifically on the revitalization of the CBD and the development of new businesses at the intersection of Routes 50 and 67, assuming that area will be annexed to the Village in the foreseeable future. It is important that they be planned concurrently, however, so that they will complement each other rather than compete directly with each other. Membership on this commission should include, but not be limited to, business leaders from the central business district and representatives of major institutions, such as Aurora University and Yerkes Observatory, whose visitors may depend on the CBD and whose activities may benefit the CBD. One Village Trustee and one member of the Planning Commission and the Growth Management Committee should be designated as “liaison” persons to the commission. Once established, the Economic Development Commission should submit for Board of Trustees approval: a mission statement, an annual work program, quarterly progress reports for the first two years, and annual progress reports thereafter. Williams Bay Comprehensive Plan - June 15, 1999 Page 70 Among its many duties, the Economic Development Commission will be responsible for formulating and coordinating an overall implementation program, including the following tasks:           an annual work program coordinated marketing for the Village’s business districts business retention, relocation, and recruitment assistance with property improvements an expanded program of events fund raising community participation and “ownership” public information and news releases developer recruitment progress reports Property owners and business tenants are fundamental to the revitalization process. They must first “buy into” the idea that they will be directly benefitted by the CBD Plan and that they have a responsibility as good corporate citizens to expedite its success. All businesses should be invited to participate in a newly established formal or informal “business association”. In addition to aiding the Economic Development Commission, the association should enhance communication between businesses, encourage cross-marketing, support high quality customer service and property maintenance, coordinate operating hours, and organize special events. CBD revitalization is beneficial to the entire community. It is not a program designated to “bail out” downtown property owners and merchants. It is a complete civic endeavor. Residents can participate directly through the public hearing process, by communicating with public and private leaders, by serving on related boards and committees, and by volunteering their time and efforts to specific projects. Perhaps their greatest influence is “the power of their pocketbook” – supporting local businesses. Some can provide an added contribution to the vitality of the CBD by living there. Marketing Marketing is effective only if it has a clear purpose and the techniques utilized are appropriate to that purpose. A recommended purpose for marketing the Williams Bay CBD is threefold:  to enhance the image of Williams Bay and its CBD  to enhance business success  to enhance community activity and interaction A sound marketing program also exhibits key principles. The first is “dress for success.” If that principle applies to the individual, it most surely applies to a business district. Hence the importance of architectural excellence, streetscape and other improvements recommended elsewhere in this plan. Individual businesses and groups of contiguous businesses must do the same. Interior design, display windows, facades and signage are common elements in the “dress for success” formula. Williams Bay Comprehensive Plan - June 15, 1999 Page 71 A second principal is to understand one’s market so well that the inventory of goods on the shelf and the services provided respond directly to the customer’s needs and desires, rather than to the provider’s own ego. The market usually finds and supports the businesses that make it convenient, satisfying, and cost-effective to shop at. For an added bonus, promote and advertise. But, if this is necessary, focus only on target market groups that are likely to desire CBD products or services. Mass marketing can be effective, but is probably not well suited to businesses located in the Williams Bay CBD. Retention and Recruitment Revitalization of the Williams Bay CBD depends on new private investment and an expanded mix of synergistic businesses, some existing, some new. Achieving this objective requires a proactive, not a reactive, strategy and an effective partnership of the Village government and private interests, especially property owners. Turnover of retail businesses is common in any business district. The U.S. Department of Commerce reports that four out of five new independent retail businesses fail within five years. Even in the best regional malls nearly 75% of the businesses change at or before lease renewal. Consequently, change and transition in shopping districts is normal. The key to a successful retention program is keeping strong compatible businesses. That process involves supporting those retailers by creating a positive business environment and assisting them with their expansion or relocation needs. That environment results from government policies, the attitudes of area property owners, and the programs of support organizations. Although it is obvious that additional retail businesses are needed in the CBD, there are few well suited vacancies at present. Consequently, the initial focus of a recruitment strategy is development of new retail space. That space is expected to come from construction on redevelopment parcels and reconfiguration of existing inefficient floor spaces to create more efficient spaces for tenants. It is also expected that, as commercial and service uses relocate, new retailers will replace those businesses. It is desirable that both of these changes occur voluntarily. However, it is likely that such voluntary actions will need to be nurtured by a knowledgeable recruitment team, including local real estate brokers and property owners, to match available spaces with desirable occupants. This requires a studied vision of the desired business mix in the CBD and a list of specific prospects. Recruiting specific businesses can be a difficult task for a local recruitment team without experience, established contacts, and adequate resources (especially time) for prospecting. A complimentary strategy is to recruit well qualified developers for redevelopment sites and building rehabilitation, and to assist them in their prospecting efforts for new businesses. Several such redevelopment sites have been identified in the CBD. Williams Bay Comprehensive Plan - June 15, 1999 Page 72 Funding Sources Wise investment in CBD revitalization can be a sound investment for those who choose to participate. Clearly, Village taxpayers, CBD property owners and businesses, lending institutions, and resident shoppers are direct beneficiaries. Other state, regional and local taxing bodies, and philanthropic organizations can also benefit. Success depends on local financial commitment and on spreading the “ownership” which, in turn, enhances oversight and accountability. Primary municipal sources include:  the general fund; for planning, design, management, construction, maintenance, etc.  motor fuel tax funds; for roadway improvements, including light fixtures.  impact fees, permit fees, license fees, etc.; for designated expenses directly related to the applicant  parking revenues; for construction and maintenance of parking facilities  special assessments; for specific improvements benefitting specific properties;  business improvement district tax revenues; for planning, marketing, physical improvements, and maintenance within a designated area;  tax increment financing; for redevelopment projects in eligible areas as defined by state statutes;  hotel and entertainment taxes; for tourism and related special events The key to municipal investment is to prepare and update annually a multi-year budget for CBD expenses and to embrace the concept of “creative financing” based on sound stewardship of public funds with a strong dose of entrepreneurism. The private sector will continue to be the primary source of financing for CBD improvements on private property. However, the private sector may also contribute substantially to “public” or “common” improvements in the following ways:  developer investments in parking facilities, publicly accessible open spaces on private property, streetscape construction abutting private property, reimbursement for municipal expenses related to private development projects, etc.  property owners; for facade improvements, enhanced signage, maintenance of buildings and grounds, adaptive reuse of buildings, etc.  merchants; for marketing individually and collectively as recommended in the CBD Plan;  financial institutions; loans to developers, property owners, and merchants for property improvements and business development benefitting the CBD; Financial and technical assistance from the State of Wisconsin may be provided by its Wisconsin Main Street Program, the Department of Transportation (responsible for Route 67), the Department of Natural Resources (for the Kishwaketoe Nature Conservancy), and other agencies. Williams Bay Comprehensive Plan - June 15, 1999 Page 73 Other sources may also be helpful, e.g.:  Non-profit organizations; for a variety of programs and improvements consistent with the agenda of each organization, e.g. arts, recreation, seniors, historic preservation, civic events;  Individual donors for specific projects, fund raising efforts and objects contained in a “wish list” published by the Village (e.g. benches, trees, sculpture, office supplies, printing, graphic design, gardening, etc.). Such volunteers and voluntary contributions should be encouraged and graciously acknowledged. Many of the most successful CBD revitalization programs throughout the U.S. are those which have the most participants and exhibit the greatest ingenuity for the utilization of available resources. Williams Bay Comprehensive Plan - June 15, 1999 Page 74