REPORTS AND PRESENTATIONS TO CITY COUNCIL · new housing in the City, with the majority...

RPB-2017-06 Update to Comprehensive Plan Council Report November 5, 2018

CITY OF BELOITREPORTS AND PRESENTATIONS TO CITY COUNCIL

Topic: Comprehensive Plan Update

Date: November 5, 2018

Presenter: Julie Christensen Department: Community Development

Overview/Background Information

On November 6, 2017, the City Council adopted a Resolution establishing a detailed process and Steering Committee tofacilitate a 10-year update of the 2008 City of Beloit Comprehensive Plan in accordance with Wisconsin Statutes. TheComprehensive Plan Steering Committee has completed their process and has recommended a Comprehensive PlanUpdate consisting of revisions to four chapters. The draft Plan Update is accessible on the City’s website atwww.beloitwi.gov in the Document Center under Planning & Building Services.

Key Issues

1. The Steering Committee held eleven (11) public meetings and two (2) open houses from November 2017 throughAugust 2018. The Steering Committee’s work was guided by a public input survey in January & February 2018 thatreceived more than 600 responses on a variety of topics. Community responses are summarized in the report below.

2. After decades of steady population levels, the Steering Committee endorsed the new Wisconsin Department ofAdministration projections, which predict modest growth of 8.6 percent to 40,000 residents by the year 2030.

3. The Committee analyzed recent development trends and shifts in housing types, as summarized below.4. Based upon the DOA population projections and past development patterns, the Steering Committee predicted land

use demand totaling 642 acres for residential, non-residential, and infrastructure uses by the year 2030. Thisprojection is about one-tenth (1/10) of the projected demand in the 2008 Plan. The Committee also analyzed landuse supply, both in terms of vacant lots available for infill and agricultural land within the City.

5. The Plan Commission adopted a Resolution recommending approval of the Plan Update on September 5, 2018.6. At the Public Hearing before Council on October 15, 2018, the new owners of 2426 Prairie Ave asked the Council to

consider a Mixed (Multifamily) Residential designation for their property in lieu of 2-Family/Townhouse Residential.As originally communicated to the new owners on July 25, 2018, Planning staff believes that the 2-Family/Townhouse use is more appropriate density given the adjacent single-family residences and school.

Conformance with Strategic Plan

Approval of this action would conform with the stated purpose of the following strategic goal:

Goal #1 – Create and Sustain Safe and Healthy Neighborhoods

Goal #2 – Create and Sustain a High Performing Organization

Goal #3 – Create and Sustain Economic and Residential Growth

Goal #4 – Create and Sustain a High Quality of Life

Goal #5 – Create and Sustain High Quality Infrastructure and Connectivity

Goal #6 – Create and Sustain a Positive Image, Enhance Communications and Engage the Community

Sustainability

(If applicable, briefly comment on the sustainable long term impact of this policy or program related to how it will impact both the built and naturalenvironment. Consider whether the policy or program will reduce dependence upon fossil fuels, reduce dependence on chemicals and othermanufacturing substances that accumulate in nature, reduce dependence on activities that harm life sustaining eco-systems, and/or meet thehierarchy of present and future human needs fairly and efficiently. Write N/A if not applicable)

N/A

Action Required/Recommendation

2nd reading of the proposed Ordinance

Fiscal Note/Budget Impact

N/A

Attachments

Ordinance, Plan Commission Resolution, and Report to the Beloit Plan Commission


ORDINANCE NO. 3628

AN ORDINANCE TO UPDATE THE CITY OF BELOIT COMPREHENSIVE PLANAND TO AMEND SECTION 12.015(3) OF THE CODE OF GENERAL ORDINANCES

The City Council of the City of Beloit, Rock County, Wisconsin do ordain as follows:

Section 1. The attached City of Beloit Comprehensive Plan, adopted in §12.015 of the Code ofGeneral Ordinances of the City of Beloit, is hereby updated in accordance with §66.1001(2) of theWisconsin Statutes, as recommended by the Comprehensive Plan Steering Committee and the City ofBeloit Plan Commission.

Section 2. The title of §12.015(3) of the Code of General Ordinances is hereby amended fromFuture Land Use Map Amendments to Plan Amendments & Updates and the above-referencedordinance number shall be added to the existing list of amendments.

Section 3. This ordinance shall take effect and be in force upon its passage and publication.

Adopted this _______ day of ____________________, 2018.

CITY COUNCIL OF THE CITY OF BELOIT

______________________________________Kevin D. Leavy, President

ATTEST:

__________________________________Lorena Rae Stottler, City Clerk-Treasurer

Published this _______ day of ________________________, 2018.

Effective this _______day of ________________________, 2018.

01-611100-5231-__________


REPORT TO THE BELOIT CITY PLAN COMMISSION

Meeting Date: September 5, 2018 Agenda Item: 3(b) File Number: RPB-2017-06

Request Overview/Background Information:On November 6, 2017, the City Council adopted a Resolution establishing a detailed process and Steering Committee tofacilitate an update of the 2008 City of Beloit Comprehensive Plan in accordance with §66.1001 of Wisconsin Statutes.The City of Beloit Comprehensive Plan Steering Committee has completed their process and has recommended aComprehensive Plan Update consisting of revisions to the following chapters: Introduction, Issues & Opportunities,Land Use (including Future Land Use Map), and Housing & Neighborhood Development. The Comprehensive Plan isintended to guide development and redevelopment decisions over the next decade. All land use decisions made by theCity of Beloit, including any actions regarding official mapping, subdivision regulation, and zoning regulations, must beconsistent with the Comprehensive Plan. The draft Plan Update is accessible on the City’s website at www.beloitwi.govin the Document Center under Planning & Building Services.

Key Issues:1. The Steering Committee held eleven (11) public meetings and two (2) open houses from November 2017 through

August 2018. The Steering Committee’s work was guided by a public input survey in January & February 2018 thatreceived more than 600 responses on a variety of topics.

2. Community Input on Beloit’s Opportunities and Challengesa. The Committee identified Beloit’s downtown, business & job growth, and historic neighborhoods as

community strengths. Survey respondents selected “amenities for recreation, downtown, and City services”as the top three factors positively impacting quality of life. More than 70 percent of respondents stated thatthey feel connected to their neighborhood and 90 percent self-reported easy access to healthy foods.

b. The Committee identified the high cost of infrastructure and land constraints as barriers limiting the supplyfor new housing in the City. Survey respondents listed the following as the top factors negatively impactingquality of life: crime (although many commented on improvement), housing maintenance issues, and schoolboard disputes/drama. Another frequent complaint related to the lack of retail shopping opportunities in theCity.

c. The survey asked about housing preferences, and more than 95 percent of respondents stated support fornew housing in the City, with the majority recommending “everywhere” as the desired location. The topresponses when asked about missing types included single-family, townhouse, and tiny houses.

d. The survey results show that few neighborhoods have a commonly known neighborhood name.3. Population Trends & Projections

a. The total population in the City of Beloit has been consistent for 50 years (36,812 as of 2017).b. The 2008 Comprehensive Plan relied on unprecedented growth in permit activity during the housing boom

and projected a population of 44,171 by 2020 and 51,859 by 2030.c. In 2008, the Wisconsin Department of Administration (DOA) projected no growth, which proved accurate.d. The Steering Committee endorsed the new DOA projections, which predict modest population growth of 8.6

percent to 40,000 residents by the year 2030.e. The biggest obstacle to reaching this level may be a lack of housing supply coming into the market.

4. Housing Development Trendsa. The City issued permits for 112 new dwelling units in 2017, which is the most since the recession ended. This

total included 12 new single-family homes and 100 new multi-family units.b. Thus far in 2018, the City has issued permits for 84 new dwelling units including 14 new single-family homes

and 70 new multi-family units.c. Local realtors and transaction data show that housing prices are increasing sharply in the Beloit area.d. The Steering Committee reviewed shifts in housing types since 2000, which include percentage increases in

single-family attached and multi-family housing in the City and decreases in single-family detached and two-family (duplex). As of 2015, there are 15,355 housing units in the City with approximately 59 percent owner-occupancy of those units.

5. Land Use Demand and Supply Projectionsa. Based upon the DOA population projections and past development patterns, the Steering Committee

predicted land use demand totaling 642 acres for residential, non-residential, and infrastructure uses by theyear 2030. This projection is about one-tenth (1/10) of the projected demand in the 2008 Plan.


b. With over 500 vacant lots available and served by existing infrastructure, infill is a key housing strategy thatcan stabilize and improve neighborhoods. When considering the number of vacant parcels in the City andmore than 90 agricultural properties totaling 2,000 acres of land, the Committee determined that there isadequate land supply available over the planning period (2018-2030).

6. Land Use Chaptera. The Steering Committee reaffirmed and updated land use goals and objectives to promote compact

development & redevelopment, and to support public & private efforts to rehabilitate existing housing andto construct new housing on vacant or underutilized sites.

b. The Steering Committee recommended the following new land use policies:i. Encourage attached single-family (townhouse or rowhouse) as infill with lower utility costs;ii. Explore a pilot program to name or rename neighborhoods to build community;iii. Consider a text amendment to allow tiny houses as a Conditional Use in R-1B districts;iv. Create a new retail/entertainment district at the northern end of the Gateway area; andv. Add flexibility to the Planned Neighborhood category to diversify land use mix.

c. The Steering Committee recommended several changes to the Future Land Use Map (#10), based uponrevised goals and objectives and in consideration of community input. The proposed revisions includenumerous vacant/underutilized parcels in various parts of the City. The complete list of recommendedFuture Land Use Map updates is attached.

7. Housing & Neighborhood Development Chaptera. The Steering Committee reaffirmed and updated housing goals and objectives to support a variety of housing

types and to promote stable, quality neighborhoods through long-term residency. The Committee added anobjective relating to encouraging housing that is attractive to all of the working professionals relocating tothe area through the provision of amenities and connectivity.

b. The Steering Committee recommended the following new housing policies:i. Encourage new neighborhoods where most housing units are single family residences, diversified with

two-family and multifamily;ii. Accommodate and promote the development of executive-style single-family dwellings to help with

business recruitment;iii. Encourage infill development of various types and styles that can utilize existing infrastructure,

especially on vacant lots;iv. Implement Neighborhood Revitalization Strategy Areas (NRSA) programs to rehab blighted housing

stock, demolish dangerous structures, and facilitate loans;v. Explore a pilot program to waive permit fees for new single-family construction in the NRSA areas on

vacant or underutilized lots; andvi. Implement new state-imposed housing report mandates relating to development fees and housing

affordability.

Consistency with Comprehensive Plan and Strategic Plan: The City’s compliance with the Comprehensive Planning law’s update requirement is the impetus for this

request. Consideration of this request supports Strategic Goals #1 & #3, as the Plan Update will seek to sustain safe &

healthy neighborhoods and to create economic and residential growth.

Sustainability: (Briefly comment on the sustainable long term impact of this policy or program related to how it willimpact both the built and natural environment utilizing the four following eco-municipality guidelines)

Reduce dependence upon fossil fuels – The Plan Update includes an emphasis on sustainability, includinginfill development, walkable neighborhoods, and mixed use neighborhoods.

Reduce dependence on chemicals and other manufacturing substances that accumulate in nature – N/A Reduce dependence on activities that harm life sustaining eco-systems – N/A Meet the hierarchy of present and future human needs fairly and efficiently – N/A

Staff Recommendation:The Planning & Building Services Division recommends approval of the attached Resolution recommending approval ofan Update to the City of Beloit Comprehensive Plan.

Fiscal Note/Budget Impact: This Plan Update has been completed in-house using existing staff.

Attachments: Future Land Use Map Updates, Public Notice, and Resolution. Note that the entire Plan Update can beviewed at www.beloitwi.gov in the Document Center under Planning & Building Services.

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City of Beloit Comprehensive Plan Chapter I: Introduction

Adopted: March 17, 2008 Updated: November 5, 2018 5

Chapter I: Introduction



A. Purpose of this Plan Update

This update of the City of Beloit Comprehensive Plan is intended to update the City’s 2008 Comprehensive Plan tomeet State legislative requirements and address emerging issues and opportunities. This Plan will allow theCity to guide growth, development, and preservation by:

Identifying areas appropriate for development and preservation over the planning period (2018-2028);

Recommending types of future land use for specific areas in and beyond the City limits;

Preserving and enhancing natural areas, cultural resources and agricultural lands in the area;

Identifying needed transportation, recreational, and community facilities and services to serve the City;

Directing private housing, economic development, and other investment in the City; and

Providing detailed strategies to implement Plan recommendations.

This Plan is being prepared under the State of Wisconsin’s Comprehensive Plan legislation, adopted in 1999and contained in §66.1001, Wisconsin Statutes. This legislation requires nine specific elements adopted underprescribed procedures that have legal standing for decisions related to zoning, subdivision of land, and officialmapping.

The remainder of this Plan is organized in nine chapters containing all of the required elements. Each chapterbegins with background information on the element (e.g., land use, transportation, economic development),followed by an outline of the City’s policy desires related to that element, and ends with detailedrecommendations for the element. The final chapter (Implementation) provides recommendations, strategies,and timelines to ensure the implementation.

This update of the Plan was prepared by City staff under the guidance of the Comprehensive Plan SteeringCommittee. The City’s 2008 Comprehensive Plan was prepared by Vandewalle & Associates, and the vastmajority of content in the 2008 Comprehensive Plan will be retained and re-adopted. There has beentremendous change in the City of Beloit since 2008 (see Chapter II), and this update will evaluate, reaffirm,and/or change the City’s goals, objectives, policies, and recommendations. The following chapters have beenupdated:

• Chapter I: Introduction

• Chapter II: Issues and Opportunities

• Chapter IV: Land Use

• Chapter VII: Housing and Neighborhood Development

The other chapters not specifically listed above were not updated in 2018 and retain their original language asadopted in 2008. The chapters that were not updated 2018 remain fully relevant and are in full force andeffect.

B. Planning ProcessA lengthy and robust public engagement effort was a primary component of updating the City’sComprehensive Plan. The goal of this public engagement effort was to identify the opportunities andchallenges facing Beloit, and to ensure that this Plan capitalizes on the community’s opportunities andaddresses the community’s challenges through locally-specific goals, objectives, and policies.

In November 2017, the City Council adopted a Resolution establishing a Comprehensive Plan SteeringCommittee comprised of elected and appointed officials, City staff, civic leaders, and interested residents. Inthe same Resolution, the City Council approved a detailed update process and public participation plan toensure that this Plan accurately reflects the vision, goals, and values of City residents. This included not onlyformal requirements outlined in §66.1001, but also more informal mechanisms intended to increase the scopeand breadth of public input.



The Steering Committee met in November 2017 and reviewed demographic trends and development trendsand plotted a public engagement strategy. The Committee met in December 2017 for a City-wide bus tour ofexisting neighborhoods and new development projects. The Committee met in January 2018 and prepared alist of questions for the public opinion survey, and also explored the results of the 2017-2020 Rock CountyCommunity Health Assessment. The public opinion survey was launched in late January 2018 and waspromoted on numerous websites, social media platforms, and in hard copy at public buildings such as CityHall and the Library. The public opinion survey received a tremendous response, and nearly 600 completedsurveys were received by the time the survey closed in March 2018. The Committee reviewed the first 500surveys in February 2018 and the final 100 surveys in May 2018. A summary of the completed public opinionsurveys can be found in Chapter II.

The Steering Committee met in March and April 2018 to review and update the Land Use and Housing goals,objectives, policies, and Future Land Use Map contained in this Plan. The Steering Committee heldCommunity Open Houses in June 2018 and approved draft updates to the above-referenced chapters onAugust 14, 2018.

Due to this extensive public participation process, the recommendations of this Plan are generally consistentwith other adopted local and regional plans, long-standing state and regional policies, and sound planningpractices.

C. General Regional ContextEstablished as a village on February 24, 1846, Beloit was officially incorporated as a city by the State ofWisconsin on March 31, 1856. One hundred and sixty years after incorporation, the City of Beloit coversapproximately 17 square miles. Located in Rock County at the intersection of Interstates 39/90 and 43, Beloithas large areas of newer commercial and industrial activities as well as an historic downtown along the RockRiver.

Situated on the Wisconsin-Illinois state line, Beloit is about an hour south of Madison, an hour southwest ofMilwaukee, less than two hours from Chicago’s Loop, and one-half hour north of Rockford, Illinois. The Cityof South Beloit, Illinois borders Beloit to the south; the Town of Turtle lies to the east; and the Town ofBeloit borders the City to the west and north.

D. Selection of the Planning AreaThis Plan includes recommendations for lands within the City’s planning area. The planning area for this Planhas been selected as to include all lands in which the City has both a short-term and long-term interest inplanning and development activity. The planning area includes all lands currently within the City of Beloit,those lands in the City’s Sewer Service Area, as approved by the Wisconsin Department of NaturalResources, and other unincorporated areas within the City’s 3-mile extraterritorial jurisdiction as authorizedunder Wisconsin Statutes. The extraterritorial jurisdiction is depicted in Map 1: Jurisdictional Boundaries; itdoes not extend into Illinois.

E. Concurrent Planning EffortsOther directly related planning efforts were taking place during the update of this Comprehensive Plan. Theseand other efforts were considered during the completion of this Comprehensive Plan.

City Center Plan Update

Parks and Open Space Plan Update

Bike and Pedestrian System Plan Update

BMHS Campus Master Plan



Map 1: Jurisdictional Boundaries

City of Beloit Comprehensive Plan Chapter II: Issues and Opportunities


Chapter II: Issues and Opportunities

The City will plan for modest population growth - approaching 40,000 people by the year 2030.

The City’s vibrant downtown, growing established businesses, thriving technology start-upbusinesses, recreational amenities, and authentic community character have led to a substantialgrowth in housing demand that currently exceeds supply.

Beloit remains a racially and ethnically diverse urban community with emerging groups that presentnew opportunities and challenges.

Beloit’s regional position relative to large population and innovation centers, at the axis of Interstates,and adjacent to some of the world’s best farmland suggest opportunities for future economic growthand community health.

The City’s sustainable characteristics and practices will position it to be flexible, energy efficient, andenvironmentally conscious in an increasingly challenging 21st century.

The City is formed by a unique collection of neighborhoods and districts, notably the “City Center”district, each a distinctive set of opportunities and roles.



This chapter of the Plan overviews trends that help develop an understanding of the changes taking place inand around the City of Beloit. As per Wisconsin Statute §66.1001, this chapter includes data on population,household and employment trends and forecasts, age distribution, educational attainment levels, andemployment and income characteristics.

More importantly, this chapter explores Beloit’s unique position and opportunities as the City looks forwardto the future. This analysis was prepared following extensive public input provided throughout this process—summarized in this chapter—and professional insight. Finally, this chapter includes an overall vision whichwill guide future preservation, development, and redevelopment over the 10-year planning period. Allsubsequent chapters of this Plan should be aimed at achieving this vision and capturing the opportunitiespresented in the Issues and Opportunities chapter.

A. Population Trends and Forecasts

Figure 1 illustrates the City of Beloit’s population trends over the past forty-five years. Between 1990 and2010, the City experienced a 3.9 percent population increase.

In contrast, the Town of Turtle experienced a small population decline during the same period while totalpopulation increased for the Town of Beloit and the City of South Beloit. Between 1980 and 2000, the City ofBeloit experienced a 1.6 percent increase. Population growth increased during the early 2000s, based on theState’s 2005 population estimate of 36,106.

Figure 1: Population Trends and Historic Growth

1970 1980 1990 2000 2010Estimate

2017

%Population

Change1990-2010

City of Beloit 35,729 35,207 35,573 35,775 36,966 36,812 3.9Source: Wisconsin DOA, Census American Community Survey

When the City’s Comprehensive Plan was being prepared in 2007, population projections were preparedusing City staff input and analysis of building permit activity. While the Wisconsin Department ofAdministration (DOA) projected a steady or flat population level for the City between 2000 and 2020, Cityplanning staff and consultants believed that the City’s population would experience a considerable increase by2020 based on the number of new or planned residential subdivisions. This scenario was entitled “BuildingPermits – 15-Year Trend” and assumed an annual growth rate of 1.3%, resulting in population projections ofover 44,000 people by 2020 and over 50,000 people by 2030.

The population projections in the 2008 Plan were prepared before the Great Recession decimated thehousing economy in 2008 and 2009. The DOA projections of steady population levels during the planningperiod proved to be more accurate. According to the DOA, the City’s 2017 population was 36,520 people,while the U.S. Census Bureau’s American Community Survey estimates the City’s 2017 population at 36,812.

Figure 2 includes the DOA population projections for the years 2020 through 2030. The DOA is projectingmodest population growth (8.6% total) during the planning period. When considering the strong demand forrental and owner-occupied housing due to strong job growth, followed by a gradual increase in housingsupply beginning in 2017, Planning staff and the Steering Committee agree that modest population growthtotaling approximately 40,000 residents by 2030 is likely and desirable. This population projection has beenused in updating the City’s Future Land Use Plan (Map #10).



Figure 2: Population Projection 2020-2030

2017 2020 2025 2030Growth2017-30

% Growth2017-30

City of Beloit Population 36,520 38,250 39,020 39,670 3,150 8.6%Source: Wisconsin Department of Administration

B. Demographic Trends

1. Age and Gender DistributionCity of Beloit demographic data from the year 2016 are presented in Figure 3. This data suggests that theCity’s population is younger than the surrounding communities and the County. Demographic trends indicatethe City’s median age has increased slightly from 32.7 in 2000 to 34.5 in 2016. The proportion of residentsover the age of 65 has held steady at 13.0% since 2000. The proportion of school-age children residing in theCity decreased slightly from 27.7% in 2000 to 26.4% in 2016, but remains higher than that of surroundingcommunities and the County. The Town of Beloit has higher retired population, which may explain the factthat the Town has the lowest percentage of residents under 18 and a relatively high percentage over 65.

Figure 3: Age and Gender Distribution, 2016

Median Age % Under 18 % Over 65 % FemaleCity of Beloit 34.5 26.4 13.0 52.1Town of Turtle 44.6 20.9 18.1 51.0Town of Beloit 46.6 20.9 19.8 51.7City of Janesville 37.6 23.6 14.9 51.5Rock County 39.1 23.9 15.0 50.8Source: U.S. Census American Community Survey 2012-2016

2. Race and EthnicityBeloit has historically been a racially and ethnically diverse city. This diversity began with a significantimmigration of African Americans in the middle part of the 20th century from the American south. Figure 4compares the City’s racial and ethnic composition to neighboring communities and Rock County. Beloit issignificantly more racially and ethnically diverse than any of the surrounding communities, as shown below.In recent decades, the City’s Hispanic population increased dramatically. As of 2016, nearly 19% of Cityresidents identify themselves as Hispanic or Latino. This increase presents many opportunities (e.g. newbusinesses, general cultural diversity) and challenges (e.g. language barriers).

Figure 4: Race and Ethnicity, 2016

% White % Black % Hispanic % AsianCity of Beloit 64.2 10.4 18.9 0.9Town of Turtle 83.8 2.0 8.8 0.6Town of Beloit 85.7 4.3 3.3 2.6City of Janesville 88.1 1.4 5.7 1.6Rock County 83.6 3.4 8.2 1.1Source: U.S. Census American Community Survey 2012-2016



3. Select Housing & Household CharacteristicsFigure 5 presents selected housing and household characteristics for the City of Beloit. As of the 2015American Community Survey, 91% of the City’s 15,355 housing units were occupied. That occupancy figurehas surely increased as the housing market has improved dramatically since 2015. Of the occupied units,approximately 58% are owner-occupied, which is lower than neighboring communities and reinforces theneed to encourage owner-occupancy over the planning period. The City’s household size has held steady atapproximately 2.5 since 2000.

Figure 5: Housing Characteristics, 2015

TotalHousingUnits

OccupiedHousingUnits

Owner-OccupiedUnits

Renter-OccupiedUnits Household Size

City of Beloit 15,355 13,978(91%)

8,144(58.3%)

5,834(41.7%)

2.52

Source: U.S. Census American Community Survey (2011-2015)

Household forecasts, based upon projected population growth in Figure 2 over the planning period andassuming a household size of 2.5, suggest that there will be an 18.6 percent increase in the number ofhouseholds in the City between 2015 and 2030. This translates rather directly to the number of new housingunits that will be required, both within existing neighborhoods through infill development and within newdevelopments along the City’s edge.

Figure 6: Household Projections

2015 2020 2025 2030% Change2015-2030

City of Beloit Households 13,378 15,300 15,608 15,868 18.6

C. Education and Employment Trends

Detailed information on education and employment trends can be found in the Economic Developmentchapter of this Plan. According to the 2012-2016 American Community Survey, 81.5% of Beloit adults (25+)are high school graduates, and 16.6% of Beloit adults (25+) have a Bachelor’s degree or higher. Althoughthese statistics are lower than state averages, they are improving thanks to numerous public and privateefforts to enhance educational attainment in the City. Improving the City’s educational levels is important forboth quality of life and economic prosperity.

Generally, the incomes of City residents are reflective of their educational levels. Per capita income statisticsindicate that Beloit residents are not faring as well as neighboring municipalities, and that much of the mid-and high-wage job growth has been realized by commuters who work in Beloit but live elsewhere. Accordingto the 2012-2016 American Community Survey, more than 24.1% of Beloit residents live in poverty, and themedian household income is just $37,779. These statistics reinforce the need to support existing and newpublic and private interventions and programs in the areas of early literacy, K-12 education, post-secondaryeducation & training, and recruitment/retention of a wide variety of businesses with sustainable wages. On apositive note, many new and promising initiatives are underway in all of these areas. In addition, the City’sunemployment rate has decreased dramatically since the Great Recession, and is currently under 4%. Finally,the proposed Ho-Chunk Casino and the resulting 1,500 jobs during the planning period would drasticallyimprove the availability of entry and mid-level positions to Beloit residents.



D. Public Participation Results Summary

The City’s planning process was guided by several complementary participation events and tools, designed toobtain input from all aspects of the diverse community. These opportunities were in addition to regularmeetings of the Comprehensive Plan Steering Committee.

A Public Participation Report, available for inspection from the City’s Community DevelopmentDepartment, includes a complete description of the outcomes of each participation event. The following is asummary of the key outcomes of the participation activities.

1. Inaugural Beloit Housing Conference – Kick-Off to Plan UpdateOn August 23, 2017, Planning staff hosted a conference attended by realtors, developers, engineers, businessowners, nonprofit organizations, builders, and local government leaders to explore why the City’s dramaticrevitalization and economic development has been disconnected from the development of new housing unitsand population growth. The purpose of the complimentary half-day conference was to promote discussionof and to brainstorm strategies to encourage the development of various housing types in the City of Beloit.More than 50 conference attendees heard expert presentations on the incredibly strong demand in thehousing market, the shortage of new and rehabbed homes, the shortage of high quality rentals, and the highcost of infrastructure as a barrier to residential development. Presentations were also given on the City’sNeighborhood Revitalization Strategy Areas and the Chamber of Commerce’s Community ConciergeProgram. Planning staff presented the existing Future Land Use Map, and discussed the need for a PlanUpdate. Many conference attendees expressed a desire to become more involved in planning, leading to theformation of the Comprehensive Plan Steering Committee.

2. Comprehensive Plan Steering CommitteeIn November 2017, the City Council adopted a Resolution establishing a Comprehensive Plan SteeringCommittee comprised of elected and appointed officials, City staff, civic leaders, and interested residents. Inthe same Resolution, the City Council approved a detailed update process and public participation plan toensure that this Plan accurately reflects the vision, goals, and values of City residents. This included not onlyformal requirements outlined in §66.1001, but also more informal mechanisms intended to increase the scopeand breadth of public input.

The Steering Committee met in November 2017 and reviewed demographic trends and development trendsand plotted a public engagement strategy. The Committee met in December 2017 for a City-wide bus tour ofexisting neighborhoods and new development projects. The Committee met in January 2018 and prepared alist of questions for the public opinion survey, and also explored the results of the 2017-2020 Rock CountyCommunity Health Assessment. The public opinion survey was launched in late January 2018 and waspromoted on numerous websites, social media platforms, and in hard copy at public buildings such as CityHall and the Library. The public opinion survey received a tremendous response, and nearly 600 completedsurveys were received by the time the survey closed in March 2018. The Committee reviewed the first 500surveys in February 2018 and the final 100 surveys in April 2018.

The Steering Committee met in March & April 2018 to review and update the Land Use and Housing goals,objectives, policies, and Future Land Use Map contained in this Plan. The Steering Committee approved thedraft Plan Update during their final meeting on August 14, 2018.

3. Public Opinion Survey – Beloit’s Opportunities and ChallengesBelow is a summary of the approximately 600 responses to the 22-question public opinion survey:

• Respondents overwhelmingly prefer neighborhoods with primarily residential uses, but prefer a mixof parks, schools, churches, and other supportive institutional uses.



• Of those respondents looking to purchase a home, more than 54% are willing to pay between $76Kand $200K. There are more respondents willing to pay more than $201K than less than $75K. Thecommittee agreed that the quality and size of a $75K home has changed drastically in the past fewyears as the market and prices have improved.

• When asked for the top three factors that positively impact quality of life, respondents selected“amenities for recreation, downtown, and City services.” Notably, “schools” was the fourth highestresponse, even though it also scored high in the negative category.

• When asked for the top factors that negatively impact quality of life, the most common answersincluded “crime, housing maintenance, and the School District.” More than 200 respondentsmentioned crime and specifically raised concerns about drug dealing, drug use, and gang activity.There was strong support for increased policing and code enforcement.

• When asked which housing type is missing and should be encouraged, the top responses included“single-family with large yards, townhouse/rowhouse, and single-family with small yards.” Thecommittee agreed that strong support for townhouse/rowhouse uses presents an opportunity topromote infill redevelopment and more affordable development in newer neighborhoods.

• “Duplex and multifamily” were the lowest scoring responses on the housing preference question.

• Answers to the question about the name of each respondent’s neighborhood showed that few of ourneighborhoods have a commonly known name. This is a problem and is an excellent opportunity toname or re-name neighborhoods to promote neighborhood pride and connectivity.

• In spite of a lack of neighborhood names and associations, 70% of Beloit residents agree that they“know their neighbors and feel connected to their neighborhood.” The committee agreed that thisreinforced the potential of naming or re-naming neighborhoods.

• More than 95% of respondents believe that the City’s plan should encourage new housing, and thevast majority selected “everywhere” as the desired location for growth.

• More than 72% of respondents believe that there are not enough jobs providing sustainable wages inBeloit.

• When asked what types of businesses are missing and should be recruited, the top responses are“shopping/retail and manufacturing.” Many commenters complained about needing to traveloutside of Beloit for household goods. The committee agreed that the upcoming closing of Elder-Beerman contributed to the survey results.

• On a very positive note, more than 90% of respondents who live in Beloit stated that they have easyaccess to healthy foods including fresh fruits and vegetables.

• 83% of respondents agreed that the City’s parks, trails, paths, sidewalks, and neighborhoods allowresidents the choice of living a physically active lifestyle. However, this question received more than100 unsolicited comments regarding parks and trails. A significant percentage of the commentslamented a real or perceived lack of public safety in the City’s parks. The committee agreed thatregular patrol by the Police Department and/or re-establishing the parks patrol was desirable.

• When asked what recreational amenities are missing in the City, more than 100 responses includedyouth centers, entertainment, programming, and/or activities.

4. City Center Council PresentationPlanning staff met with the Beloit 2020 City Center Council on June 7, 2018 to discuss issues andopportunities facing the City and to share the preliminary recommendations of the Comprehensive PlanUpdate. Recurring themes included the need to reduce the cost of infrastructure to stimulate new housingdevelopment of various types, densities, and costs. Attendees also discussed the idea of naming or renamingneighborhoods to stimulate community connections and to build pride and momentum.

5. Draft Plan Open Houses – June 26 & 27, 2018The Steering Committee hosted two Community Open Houses to allow the public to review and commenton the proposed Plan updates. The first Open House was held at the Merrill Community Center, and the



second was held at the Beloit Historical Society. Public comments and concerns were shared with theSteering Committee, resulting in minor changes to the Future Land Use Map prior to adoption.

6. Draft Plan Public HearingsOn September 5, 2018, the Plan Commission considered this Comprehensive Plan Update. On October 15,2018, the City Council held a public hearing to receive any comments. Following the public hearing, the CityCouncil held a first reading of an Ordinance to Update the Comprehensive Plan. A second and final readingof the Ordinance was held on November 5, 2018.



Opportunities Analysis

Building on the demographic analysis and participation results, this section explores future opportunities forthe City of Beloit given its position within the region and its unique assets. The opportunities analysis may beframed in various ways and at various geographic levels—beginning with the region, moving to the City andits surroundings (defined as the “metro” area), and then focusing down to the neighborhood or district level.The opportunities raised through this analysis were used to craft the City’s vision and overall goals, and toadvise recommendations of this Plan that are both innovative and implementable. Maps 2 and 3 presentBeloit’s opportunities, also described below.

7. Regional OpportunitiesThe City is part of a larger, healthy region. Its location in the region presents opportunities. Regionalopportunities, graphically illustrated in Map 2, are focused around Beloit’s location in a heavily populated andinnovative region, its superior access to transportation routes, and its nearby agricultural resources.

Located on the Rock River and the Interstate, Beloit is a “Gateway to Wisconsin.” Beloit is also the regionalmidpoint of a group of larger metropolitan areas including Madison, Milwaukee, Chicago, and the QuadCities. This location provides opportunities for transshipment, logistics, manufacturing, and the conventionindustry. The City has already capitalized on its position in the region with the successful establishment of theGateway Business Park. Expanding this effort to other aspects of the City’s development will be a keycomponent of Beloit’s future.

Centered at the junction of Interstates 39/90 and 43, the City of Beloit is located on a direct route to many ofthe Midwest’s major population, economic, and innovation centers. The ongoing expansion andreconstruction of I-39/90 between Beloit and Madison and the reconstruction of the I-39/90 interchangewith I-43 in Beloit will further improve access from Beloit to the Interstate and larger region. Airports inMadison, Milwaukee, and Rockford are within an hour’s drive of Beloit, and rail and local air service heightenaccess opportunities. These transportation options, along with the Beloit Transit System, offer exceptionalaccess and convenience to the bi-state region and beyond.

Beloit’s position relative to some of the best agricultural land in the world—coupled with its other regionalassets—suggests that the processing and distribution of farm products will remain key to its future. Foodprocessing will continue to be a growth sector, particularly as regional consumers become increasinglyconcerned with food security. Further, Beloit is ideally positioned at the convergence of agricultural regionsto process raw materials for the new “bio-economy.” The bio-economy is focused on finding new ways touse and process corn and other organic matter into new, marketable plastics, fuels such as ethanol, and evenpharmaceuticals. At the same time that production costs to process these materials are declining, economicincentives and economic, national security, and environmental costs of petroleum are increasing. Soybeans,corn, and other biomass offer even more potential for a sustainable and economically viable petroleumsubstitute. Advances in bio-economy research at nearby institutions such as the University of Wisconsin—Madison also contribute to this potential.

8. Metro OpportunitiesA view closer to home suggests additional opportunities for the City’s future. The metro opportunitiesanalysis, graphically illustrated in Map 3, identifies Beloit’s urban character, diversity, sustainability, economicviability, and natural resources and recreational base as key metro opportunities. Each of these factors ischaracterized on the following page:

Urban Character. Beloit is an urban place. Its urban character is formed by the City’s historic and vibrantdowntown; active riverfront; recreational opportunities; unique neighborhoods offering a range of livingenvironments and housing choices; neighborhood businesses; events and activities for locals and visitors.This character is evident in the numerous adaptive reuse projects throughout the City.

Diversity. Beloit is one of the most racially diverse cities in the Midwest, particularly for its size. Thisprovides a wealth of cultural, business, dining, and other opportunities. The presence of the renowned



What is Sustainability?The term sustainability refers to a community’scapacity to support the long-term health andwelfare of its natural and man-made environment,as well as all forms of life that depend on thatenvironment. A sustainable community is focusednot only on protecting natural resources, but alsoon ensuring a high quality of life for all residents.To achieve an increased level of sustainability, acommunity must recognize the interconnectednessof all things, as well as the impact their actionshave on the greater region and the world.

A community can advance sustainability through avariety of strategies such as promotingcomprehensive transportation networks andservices; ensuring a variety of housing optionsthroughout the community; investing in a strongeconomy that provides a diversity of local jobs,goods, and services; supporting well designeddevelopment that preserves high-quality farmlandand complements the natural environment; seekingout opportunities to reduce non-renewable energyconsumption and waste; and generally bydeveloping comprehensive solutions to resolvingcomplex issues.

Beloit College in the community also enhances educational and cultural offerings beyond those of nearlyevery other community of Beloit’s size.

Sustainability. Beloit is naturally a sustainablecommunity that will be more resilient to energyshortages and environmental challenges in thefuture. Beloit’s compact form, urbanneighborhoods, and variety of transportationoptions are keys to its potential as a sustainablecenter. Further, growth of Beloit as anaccessible community for living, working,shopping, and playing are key to the City’ssustainable future. Look for the graphic to theright throughout this Plan for key sustainabilityrecommendations. Beloit’s inherentsustainability has the potential to improvehealth outcomes and to increase equity.

Economic Vitality. Beloit provides a variety ofeconomic opportunities today, fromneighborhood businesses on the west side andelsewhere, to a resurgent downtown, to excitingnew job and tax base growth in the Gatewayarea. A ready supply of available land for furthereconomic growth is available. Furtheropportunities associated with entertainment-based development, including growingdowntown events and a possible casino, alsoportend a bright future.

Natural Resources and Recreation. Beloit’sposition relative to agricultural resourcessuggests economic directions; it also helpsdefine the experience of Beloit by supporting aclear definition between “city” and “country.” The Rock River is a critical community gathering point,recreational resource, and defining characteristic. Future opportunities also relate to expansion of andaccessibility to the Turtle Creek Greenway as a determinant for future community form, recreation, andstormwater management.



Map 2: Regional Opportunities



Map 3: Metro Opportunities



9. District Opportunities: City CenterThe City Center Vision Plan, adopted in June 2005 by the City Councils of Beloit and South Beloit, sets theagenda for projects within Beloit and South Beloit's “City Center.” This area generally follows the Rock Rivercorridor from the Eclipse Center (former Beloit Mall) on the north to South Beloit on the south. The visionis that the City Center should be “the confluence of the marketplace, ideas, culture, and the exceptional.”

The City Center Vision Plan identifies nine districts, depicted in Map 4, spanning the Rock River and TurtleCreek and encompassing the centers of both Beloit and South Beloit. Each of these areas has a unique visualcharacter, mix of uses, special features, and development potential. The following opportunities are identifiedfor each of the nine districts:

Rock River Parkway District: The Rock River and adjoining greenway trail system define this district andprovide outstanding scenic, recreational, and natural features for all City Center.

Water Tower District: Site of the construction of Beloit’s historic Eclipse windmills, this area remains asignificant employment center and will be further developed into a major mixed-use destination.

College Park District: Beloit College and the adjoining historic neighborhood anchor this district,connected with employment, commercial, entertainment, and recreational areas.

Grand Avenue District: This district is City Center’s commercial and entertainment core (i.e., downtown),providing vibrancy that ripples throughout Beloit.

Turtle Creek District: Quaint Turtle Creek runs through this district, which will transition over time to aneighborhood north of the creek and expanded employment on the south side.

Blackhawk Business District: This emerging business district enjoys an outstanding location at theintersection of Blackhawk and Gardner Avenue, and the nearby Turtle Creek and Rock River ParkwayDistricts.

Iron Works District: Centrally located, this district serves as the crossroads for a mixed use neighborhoodand employment center, with immediate access to the high school and Rock River Parkway.

High School District: Beloit Memorial High School is one of the community’s most significant landmarksfor its educational functions, social interactions, variety of activities, and presence along the river. Thehigh school is the primary influence in this district.

Shore Drive District: Historically, this area provided a major community gathering and recreational spacealong the Rock River’s shores. Today, this district consists of the charming Lenigan Creek, Shore Driveand adjacent neighborhoods, historic buildings and sites, and the redeveloping Maple Avenue, with newand redevelopment opportunities in several places.

The Rock River Parkway Master Plan is the first implementation plan for the City Center Vision Plan. Thismaster plan establishes concrete steps to achieve the vision.

The Life At The Center Strategy Document (2010) supplemented the 2005 City Center Vision Plan.

The Connections: City Center Plan was adopted by the Beloit City Council on March 4, 2013 and providesrecommendations for the redevelopment of and connections within the public and private spaces in the 930-acre “Confluence Corridor” in Beloit and South Beloit.

An update to the City Center Vision Plan was prepared in 2015, but was not adopted by the City Council.

In 2017, City staff, School District of Beloit administrators, Beloit 2020, Angus Young Architects, BattermanEngineering, and Ayres Associates collaborated on the Beloit Memorial High School Campus Master Plan. Thismulti-phase Master Plan contemplates the redevelopment of the area around the High School as a walkable,vibrant, cohesive campus through the construction of new athletic facilities, pedestrian corridors, dispersedsurface parking, streetscaping, and wayfinding. Although this Master Plan has not yet been adopted by theCity Council, the School District of Beloit’s proposed administrative office/welcome center was approved bythe School Board in 2017 and approved as part of a Planned Unit Development – Master Land Use Plan bythe Beloit City Council in March 2018.



Map 4: City Center Plan



10. Vision Statement and Overall GoalsBased on all of the efforts, data, and analysis described in this Issues and Opportunities chapter, the Cityendorses the vision statement and overall goals on the final page of this chapter.

The vision statement and overall goals are expressions of the general direction the City wishes to take overthe next 10 years. All objectives, policies, programs and detailed recommendations to implement the Plan—contained in the following chapters—should advance or at least be consistent with this vision and thosegoals. Because the vision for the City of Beloit provides the framework on which the more specificrecommendations of the Plan are based, the page that contains the vision statement also includes referencesto specific chapters where more can be learned about the recommendations to implement each overall goal.



Figure 8: Vision, Overall Goals, and Objectives

City of Beloit Comprehensive Plan Chapter IV: Land Use


Chapter IV: Land Use

Encourage new neighborhood development on the City’s east and west sides, incorporating openspace and a mix of housing types.

Support continued reinvestment in existing neighborhoods.

Advance the City’s east side as a major regional employment and shopping destination.

Promote revitalization and community-serving retail, service, and mixed use developments on theCity’s west side.

Continue the commitment to downtown and riverfront revitalization.

Direct attention towards aging commercial corridors outside of the downtown for community-serving mixed use and employment uses.

Enhance the appearance of existing developed areas and require high quality building standards fornew development to enhance the City’s image.

Collaborate with adjoining communities on land use near the City’s edge.

Limit premature development in long range urban growth areas until development there can beprovided with a full range of urban services.

Limit development within environmental corridors and long-range agricultural areas.



This chapter will guide land use decision-making in the Beloit area from the City’s perspective. It contains acompilation of background information, goals, objectives, policies and recommended programs to guide thefuture preservation and development of lands in the City of Beloit and its extraterritorial jurisdiction. Itincludes maps showing existing land uses and recommended future land uses, and provides land use data andanalysis as required under §66.1001, Wisconsin Statutes.

Long-range land use planning allows municipalities to phase and guide development in a manner thatmaximizes positive neighborhood and economic development, maintains and enhances community character,protects sensitive environmental features, promotes revitalization of older parts of the City, and providesefficient municipal services. Land use planning also enables the City to identify lands well-suited for publicpurposes, such as schools, parks, municipal facilities, major roads, and stormwater management facilities.

A. Existing Land Use Categories

An accurate depiction of the existing land use pattern is the first step in planning for the desired future landuse pattern. The set of categories below was used to prepare the existing land use map for the planning area(Map 8).

Agricultural: agricultural and related uses, cropland, farmsteads, mineral extraction operations, and singlefamily residential development with maximum development densities of 1 dwelling unit per 35 acres.

Single Family Residential-Exurban: single family residential development on private well and on-sitewaste treatment (septic) systems, generally at densities between 1 dwelling unit per acre and 1 dwellingunit per 35 acres.

Single Family Residential-Urban: single family residential development and small institutional uses such aschurches on public sewer, public water, and other urban services and infrastructure.

Two-Family/Townhouse Residential: attached single family, two-family, walk-up townhouse residentialdevelopment, and small institutional uses such as churches on public sewer, public water, and otherurban services and infrastructure.

Mixed Residential: a variety of residential units focused in particular on multiple family housing (3+ unitsper building), and small institutional uses such as churches on public sewer, public water, and other urbanservices and infrastructure.

Office: office, institutional, research, and office-support land uses on public sewer, public water, andother urban services and infrastructure.

Commercial: a variety of retail, commercial service, office, and institutional land uses (outside of thedowntown), generally on public sewer, public water, and other urban services and infrastructure.

Downtown: a mix of retail, commercial service, office, institutional, and residential uses in Beloit’shistoric commercial center.

Business Park: modern, indoor manufacturing, warehousing, distribution, office, research anddevelopment, and support uses with inside or screened storage areas on public sewer, public water, andother urban services and infrastructure.

Industrial: manufacturing, warehousing, and distribution land uses and controlled outdoor storage areasgenerally on public sewer, public water, and other urban services and infrastructure.

Institutional and Community Services: large-scale public buildings, hospitals, youth and elderly servicefacilities, special-care facilities, power plants, airports, and highway rest areas. Small institutional uses mayoccur in other land use categories.

Parks and Open Spaces: park and public open space facilities devoted to playgrounds, play fields, trails,picnic areas, and related recreational activities, and conservation areas.

Vacant: undeveloped parcels generally not in crop production.

Surface Water: lakes, rivers, creeks, perennial streams, and some drainageways.

Rights-of-Way: publicly-owned land for roads, highways, and railroads.



B. Existing Land Use Pattern

Map 8 depicts the existing land use pattern within the City of Beloit and its extraterritorial jurisdiction. Figure10 summarizes the existing acreage within the various land use categories in the City.

Figure 10: City of Beloit Existing Land Use Totals, 2006

Land Use Acres PercentAgricultural 3,188 28.7Single Family Residential – Exurban 17 < 1Single Family Residential – Urban 2,619 23.6Two-Family/Townhouse Residential 156 1.5Mixed Residential 171 1.5Institutional and Community Services 835 7.5Downtown 65 < 1Commercial 597 5.4Industrial 648 5.8Business Park 383 3.5Parks and Open Spaces 1,085 10Vacant 844 7.6Right-of-Way 487 4.4Total 11,095 100Source: City of Beloit, 2006

1. Residential DevelopmentMost of the City’s older residential neighborhoods are located within a mile of the Rock River. The majorityof these neighborhoods are characterized by a traditional linear street design pattern and smaller lot sizes. Themajority of the City’s newer development is located east of the Rock River and is characterized by a morecurvilinear design in which streets and lots often follow the natural contours of the land.

Single-family residential development is the City of Beloit’s predominant land use (comprising nearly 24percent of the overall land area in the City). The City’s overall residential density averages roughly four homesper gross acre.

When combined, Two-Family/Townhouse Residential and Mixed Residential categories account forapproximately three percent of existing land area in the City. These land uses are generally developed ataverage densities of between nine and thirteen dwelling units per acre.

2. Commercial DevelopmentThere are approximately 600 acres in Beloit used for commercial development outside of the Downtownarea, accounting for approximately five percent of the City’s land. These land uses are concentrated along themajor roadways, the Interstate 39/90/43 interchange area, Madison Road, Prairie Avenue, and CranstonRoad. The majority of the City’s commercial development is located in shopping centers or strip malls,surrounded by ample parking. The City also has an historic and vital central business district with a variety ofretail and commercial service uses, including an increasing number of upper-floor housing units.

3. Industrial and Business Park DevelopmentThere are over 1,000 combined acres of Industrial and Business Park land uses in Beloit, accounting for overnine percent of the City’s area. These land uses are concentrated on the eastern side of the City, near therailroad and Interstate. The Gateway Business Park, encompassing 383 acres on the far eastern side of theCity, is home to industrial, manufacturing, and warehousing industries. There remain some larger industrialoperations near the downtown area as well.



Map 8: Existing Land Use



4. Other DevelopmentCommunity facilities such as churches, schools, municipal facilities, and utilities account for 835 acres (7.5percent) of the City’s land. These facilities are distributed throughout the City. In addition, there are another1,085 acres of public parkland and/or open space located in the City, not including recreational landsassociated with the school grounds. Most of these lands are located within the Turtle Creek Greenway andBig Hill Park. More detailed information regarding community facilities is located in Chapter Five: Utilities,Community Facilities, and Civic Organizations.

C. Historic Land Development Trends

As described in Chapter 2: Issues and Opportunities, the City is anticipating modest population growth overthe planning period totaling approximately 40,000 residents by 2030. This expected population growth isalready showing itself in dramatically increased demand for all types of housing units, and the largest increasein housing unit construction activity (supply) since the end of the Great Recession.

Figure 11: New Residential Units, 2010-2017

Year New Residential Units2010 12011 122012 22013 352014 62015 92016 132017 112Source: City of Beloit Planning & Building Services, 2018



D. Land Market Trends

After decreasing significantly during the Great Recession, property values are once again increasing inresponse to strong real estate demand driven by employment growth, downtown revitalization, and lowinterest rates. According to the Wisconsin Department of Revenue, the total equalized value of the City ofBeloit decreased after the Great Recession to a low of $1,377,134,000 in 2013, but has rebounded strongly to$1,607,119,800 in 2017. This value would be even higher but for “dark store” appeal strategies beingdeployed by big box retailers in an effort to shift their tax burden to other property tax payers.

Beloit-area real estate professionals are reporting strong demand for all types of housing, both rental andowner-occupied, resulting in bidding wars over available properties and sales prices that often exceed listprices.

Raw land values have increased in the Beloit area over the past several years as the supply of existing homesas dwindled. The cost of vacant residential lots in the City varies widely, from approximately $10,000 in thecentral City to as high as $50,000 in neighborhoods with larger, executive-style homes along Turtle Creek.Land intended for commercial or industrial use varies widely in price, depending upon location, access,visibility, nearby development, and environmental constraints.

E. Land Supply

Supply of land available for development includes areas of the City that have been planned or approved fordevelopment, but not yet built-out; vacant areas within the City that have not been planned for development;developed land within the City that is appropriate for redevelopment; and land in the peripheral area that isnot within the corporate limits of the City, but is potentially available for future inclusion in the City’s SewerService Area. Through municipal boundary agreements, particularly with Turtle, certain areas east of the Citywill not be available for City development for the next several years. The City may also not grow south of theState line. In addition, the proposed incorporation of the Town of Beloit into the Village of Riverside mayimpact the availability of land for future annexation and development.

For vacant and other undeveloped areas, the land actually available for development is determined by severalfactors. The area available for development is limited by any environmental corridors, areas of wetlands,floodplains, public ownership, conservation easements or other characteristics that make it un-developable.Other potential building limitations (infiltration area, steep slopes, shallow depth to bedrock or depth towater table, and hydric soils) will also influence which vacant areas are actually appropriate for development.Drainage basins also form opportunities and limitations for development. Building limitations will need to bemeasured and assessed by the developer and City when a specific development proposal is being considered.

One of the biggest barriers to land development in the Beloit area is the increasing cost of infrastructurerelative to land prices. At the City-sponsored Housing Conference in August 2017, one of the presentersestimated the cost of developing a typical single-family lot (including water, sewer, gas, etc.) to be $20K to$25K. The high cost of infrastructure and building materials are creating razor-thin profit margins that partlyexplain the slow response of the supply side of the housing economy. However, the high cost ofinfrastructure also creates an opportunity to promote infill development on parcels that are served by existinginfrastructure.

F. Projected Land Use Demand

The interaction of local and regional dynamics will continue to drive population change, household size, thebalance of residential and non-residential uses, and the density of development in the Beloit area. Thesefactors, in turn, determine the demand for land development.

As described in Chapter Two: Issues and Opportunities, this Plan is based on population projections derivedfrom the Wisconsin Department of Administration as shown in the figure below.



Figure 12: Population Projections 2020-2030

2017 2020 2025 2030Growth2017-20

% Growth2017-20

City of Beloit Population 36,520 38,250 39,020 39,670 3,150 8.6%Source: Wisconsin Department of Administration

The City’s land use demand projections have been significantly reduced in this Plan Update. In addition toprojecting unprecedented population growth, the 2008 Plan included a 50% “flexibility factor” for bothresidential and non-residential acreage, resulting in a staggering demand projection of nearly 6,000 acres overthe planning period. The following land use demand projections are based upon the DOA populationprojections in Figure 12 above, along with a more reasonable 20% flexibility factor. The projections suggest atotal residential land demand of approximately 300 acres between 2017 and 2030, and 248 acres of non-residential land demand over the same planning period. When accounting for roads, utilities, and otherpublic uses, the City should expect land use demand to be approximately 642 acres over the planning period.

Figure 13: City of Beloit Land Use Demand Projections

2017-2020

2020-2025

2025-2030 Total

Projected Number of New Residents 1,730 770 650 3,150Projected # of New Housing Units (2.5/unit) 692 308 260 1,260New Residential Acreage Demand (5 dwelling units/acre) 138 62 52 252Flexibility Factor 1.2 1.2 1.2 -Total Residential Acreage Demand 166 74 62 302Percent Total Land Use Demand in Residential Uses 55% 55% 55% -Percent Total Land Use Demand in Non-ResidentialUses

45% 45% 45% -

New Non-Residential Acreage Demand* 113 50 43 206Flexibility Factor 1.2 1.2 1.2 -Total Non-Residential Acreage Demand 136 61 51 248Land Needed for Roads, Utilities, StormwaterManagement, etc.

50 22 19 92

Total Non-Residential and Residential Land Use Demand(including flexibility)

352 157 132 642

*Non-residential land use demand includes commercial and industrial uses.

An analysis of current land use supply indicates that there is sufficient undeveloped and underutilized land inthe City of Beloit to satisfy the projected demand during the planning period, at least when viewed from anunrefined or gross acreage level. There are over 500 vacant residential lots in the City that can accommodateinfill development served by existing infrastructure. In addition, there are more than 90 properties classifiedas “agricultural” land with a total acreage of more than 2,000 acres.

G. Supply and Demand Interaction

The sections that follow bring together supply and demand. Map 10, the Future Land Use Map, and thepolicies and programs detailed in this Plan suggest how to accommodate future land use demand within thesupply of lands potentially available for development. This includes recommendations of which types of landuses, if any, would be most appropriate for given locations within the City and the surrounding areas. Map 10has been updated with a deliberate emphasis on encouraging a variety of desired (and possibly missing)housing types within the existing City limits. Given the high cost of building infrastructure to serve detached



single-family homes, the importance of infill and attached housing types has been emphasized in the updatedFuture Land Use Map.

H. Existing and Potential Land Use Conflicts

Existing land use conflicts in the City of Beloit mainly occur in older parts of the City where industrial usesand heavy commercial uses are in close proximity to residential uses without adequate buffering.Homeowners and businesses have occasional conflicts around the issues of noise, car and truck traffic, andlighting that are generally associated with life in an urban community.

This Comprehensive Plan is focused on minimizing potential future land use conflicts though thoughtfulplacement of possibly conflicting new uses, high quality design, and buffering of possibly conflicting uses. Inaddition, this Plan is focused on the revitalization of older parts of the City, which will help eliminate orreduce use conflicts and increase positive activity levels for currently vacant and underutilized properties.

I. Recommended Future Land Use Pattern

Before considering specific policies and land use recommendations for specific areas of the City, it is useful tostep back and describe the City’s vision for future land use overall, both within the City and surroundingareas.

Given its superior access, existing land uses, and momentum, the east side of the City will continue to be aneconomic development focus for the City. Regional commercial uses are desired for the Interstate 39/90/43interchange, which will be improved with better local access by 2022. The Gateway Business Park willcontinue to develop with an emphasis on growing high-tech businesses and jobs. Lands to the northeast ofthe City are planned to remain rural and agricultural to reflect the boundary agreement with the Town ofTurtle; towards the end of the planning period or beyond, these areas may also become available for futureeconomic growth.

The west side of the City will continue to provide a mix of residential and commercial uses in a quieter urbansetting, with City support for and involvement in housing revitalization activities in the Hackettneighborhood. The northwest and far west edges of the City will be developed with new neighborhoods builtaround natural features in the area.

Redevelopment activities will be focused in the downtown area and on and near aging commercial corridors,such as Prairie Avenue, which is scheduled to be reconstructed by 2020. Changing market dynamics and ideason land use integration will push these areas to include a more diverse mix of retail, service, office andresidential uses.

This chapter includes conceptual redevelopment plans for several areas of the City. While they by no meansreplace the Future Land Use Map 10 in this chapter, these maps describe area-specific growth directions andopportunities that are critical in forming the recommendations and maps in this chapter.

J. Land Use Goals, Objectives and Policies

1. Goala. Promote a future development pattern that contains a sustainable mix of land uses to serve the needs

of a diverse City population and business community.

b. Preserve and enhance the quality of life in existing City neighborhoods while capitalizing on theirinherent sustainable qualities and unique character. Attract new residents that can support the City’scontinued revitalization without displacement of long-term residents.

2. Objectivesa. Promote compact development and redevelopment to promote energy efficient land use patterns and

preserve open space, natural areas, while encouraging healthy lifestyles.



b. Support land uses and development designs that help to enhance Beloit’s identity and a sustainablefuture.

c. Protect City long-term growth interests during and beyond the planning period.

d. Promote a mix of housing types in all new neighborhoods, rather than segregating different housingtypes in different parts of the community.

e. Develop neighborhoods as interconnected places focused around parks, schools, neighborhoodshopping, and other neighborhood facilities.

f. Provide sufficient improved business and industrial sites for the City to be competitive in attracting,retaining, and helping to grow high quality businesses and industries.

g. Support efforts to rehabilitate existing housing and to construct new housing on vacant orunderutilized sites that are appropriate for additional housing units.

h. Promote neighborhood-supporting retail establishments in or near residential neighborhoods.

3. General Policiesa. Actively promote infill development and redevelopment where opportunities exist as a means to

improve neighborhood conditions, increase local economic and shopping opportunities, and makeuse of existing infrastructure investments.

b. Encourage attached single-family housing (townhouse or rowhouse) as a low-density infill optionthat can utilize existing public sewer and water systems, thereby reducing construction costs.

c. Support the adaptive reuse of vacant institutional buildings as a preferred alternative to demolition,provided the proposed use is consistent with the detailed land use recommendations in this chapter.

d. Promote public and private efforts to rehabilitate existing housing stock to meet market demands,particularly through the reversion of nonconforming rental properties to owner-occupied homes.

e. Prioritize development in areas with existing utilities or sewer service area designation.

f. Focus neighborhood-oriented commercial uses in areas that will conveniently serve residential areas.

g. Ensure logical transitions between potentially incompatible land uses. Whenever possible, avoidlocating potentially conflicting land uses adjacent to each other. Where necessary, buffer potentiallyincompatible uses through landscaped buffers, open space uses, or less intensive uses.

h. Work to preserve the value of existing City neighborhoods through concerted efforts towardsrevitalization. Explore a pilot program to name or re-name existing neighborhoods to enhanceneighborhood identity, pride, and connections.

i. Explore the feasibility of zoning text amendments to allow new single-family dwellings (tiny houses)as a conditional use in residential districts.

j. Consider the use of the Health Impact Assessment (HIA) process to support health considerations indecisions that impact the built environment, such as large-scale new subdivisions, largeredevelopments, infrastructure expansions, etc. Partner with the Rock County Public HealthDepartment and allied organizations to complete HIA’s for public and private projects that have thepotential to significantly affect public health.

k. Where City neighborhood plans do not exist, require landowners wishing to develop a portion oftheir property to prepare a master plan for future use of their entire contiguous ownership parcel forCity approval, along with connections to adjacent properties.

l. Require developers to coordinate development plans with adjoining property owners so that therewill be an efficient system of streets, stormwater facilities, utilities and other public facilities.

m. Promote the stabilization and expansion of the current economic base by identifying areas for non-residential and employment-based land uses consistent with the areas shown for commercial, office,industrial and mixed-use development on Map 10.



n. Capitalize on the I-39/90/43 interchange reconstruction project and the extension of MilwaukeeRoad by creating a new commercial district at the northern end of the Gateway Business Park.Support the attraction of destination retailers and/or entertainment uses that can benefit from thearea’s superior visibility and highway connections.

o. Maintain a residential balance policy for the City that sets an acceptable ratio of owner-occupied torenter-occupied dwelling units in the City (see Housing & Neighborhood Development chapter forpolicy).

p. Provide adequate neighborhood and community parks to meet both the active and passiverecreational needs of the residents of the community. Support increased patrols of existing parks toaddress real and perceived public safety concerns that are limiting their utilization.

q. Enter and amend intergovernmental boundary and land use agreements to achieve mutuallybeneficial development and preservation patterns of high-quality.

r. Amend the City’s zoning and subdivision ordinances to reflect the recommendations of thisComprehensive Plan. Chapter Nine: Implementation includes detailed recommendations.

s. Work with developers and the public to continually educate them on Plan recommendations and howthey affect private development proposals.

K. Land Use Recommendations, Specific Policies, and Programs

This section of the Plan has the ambitious intent of guiding land use and development in the City through theyear 2030. Map 10, the Future Land Use map, is the centerpiece of this chapter and the Plan’s land usedirection. Map 10 was prepared based on an analysis of a variety of factors, including overall developmenttrends, location and availability of vacant land in the City, location of areas logical for future developmentbased on existing development, environmental constraints, public and property owner input, and this Plan’soverall vision (see Chapter Two: Issues and Opportunities).

The Future Land Use map and related policies described below should be used as a basis to update the City’sregulatory land use tools, such as the zoning map. They should also be used as a basis for all public andprivate sector development decisions. These include annexations, rezonings, conditional use permits,subdivisions, extension of municipal utilities, and other public or private investments. Changes in land use toimplement the recommendations of this Plan will generally be initiated by property owners and privatedevelopers. In other words, this Plan does not automatically compel property owners to change the use oftheir land.

Not all land shown for development on Map 10 will be immediately appropriate for rezoning and other landuse approvals following adoption of this Plan. Given service demands and other factors, careful considerationto the amount, mix, and timing of development to keep it manageable and sustainable is essential. The Cityadvocates the phased development of land that focuses growth in areas and types that advance the vision ofthe community and can be efficiently served with transportation, utilities, public services, and othercommunity facilities.

Wisconsin Statutes specifically allow cities to prepare plans for lands both inside and outside their municipalboundaries—up to the edges of their extraterritorial jurisdictions. To effectively manage growth, this Planidentifies desirable land use patterns within the existing City limits and in unincorporated areas around theCity. This approach recognizes that City (and regional) growth and economic health can be either facilitatedor impeded by the patterns of growth and preservation in adjacent areas. Not surprisingly, implementingmany of the land use recommendations of this Plan will be greatly aided by intergovernmental cooperation,with opportunities described more fully in Chapter Nine: Intergovernmental Cooperation.

Each of the future land use categories shown on Map 10 is described below. Each land use categorydescription includes where that type of land use should be promoted, the appropriate zoningdistricts to implement that category, policies related to future development in areas designated bythat category, and overall approaches for achieving the City’s overall vision for the future.



URBAN RESIDENTIAL LAND USE CATEGORIES

1. Single Family Residential - Urban

DescriptionThis future land use category is intendedfor existing and planned groupings ofsingle-family detached residences that areserved by public sanitary sewer and watersystems. Small public and institutionaluses— such as parks, schools, churches,and stormwater facilities—may also be builton lands within this category. This categoryis mapped in various parts of the City ofBeloit—as well as the adjoining Town ofBeloit—where the desire is to promote orretain single family character.

Recommended ZoningThe City’s R-1A and R-1B single family zoning districts are most appropriate for areas mapped in this futureland use category in the City. PLI zoning may also be appropriate for small institutional uses.

Policies and Programsa. Develop new single family residential areas in accordance with carefully-considered neighborhood

development plans (see discussion later in chapter).

b. Pursue residential infill opportunities where feasible.

c. As maintenance and rehabilitation needs arise, work with the County, State and local lenders to assisthomeowners and landlords with rehabilitation projects.

d. Work to continually improve code enforcement efforts to maintain attractive, well-kept neighborhoods.

e. Work with the local historical society, Landmarks Commission, and property owners to protect andcelebrate historically significant residences within the community.

f. Refer to Chapter Seven: Housing and Neighborhood Development for detailed housingrecommendations.

2. Two-Family/Townhouse Residential

DescriptionThis designation is primarily intended toallow groupings of attached single familyresidences with individual entries (e.g.,townhouses, rowhouses, condominiums) andduplexes that are or will be served by publicsanitary sewer and water systems. Smallpublic and institutional uses—such as parks,schools, churches, and stormwater facilities—may also be built within this designation.Future two-family development is plannedfor existing platted infill lots, including all orportions of new neighborhoods. These areasare particularly appropriate for owner-occupied projects given the surrounding uses.



Recommended ZoningThe City’s R-2 two family zoning district, along with PUD zoning, are the most appropriate districts toimplement this future land use category.

Policies and Programsa. Promote these developments to be built for owner-occupancy wherever possible, and where approved

for owner-occupancy, attempt to maintain that status through appropriate conditions during thedevelopment approval process.

b. Encourage the development of vacant or underutilized land in this category as attached single-familyhousing (townhouse or rowhouse) on existing public sewer and water systems.

c. As maintenance and rehabilitation needs arise, work with the County, State and local lenders to assisthomeowners and landlords with rehabilitation projects.

d. Refer to Chapter Seven: Housing and Neighborhood Development for detailed housingrecommendations.

3. Mixed Residential

DescriptionThis future land use category is intended for a variety of residential units usually developed at densities thatexceed six units per acre and served by public sanitary sewer and water systems. Single-family detachedhousing, attached single family residences with individual entries (e.g., townhouses, rowhouses), multifamilybuildings, and small public and institutional uses—such as parks, schools, churches, and stormwaterfacilities—may also be within lands mapped in this category.

Recommended ZoningThe City’s R-3 and R-4 multi-family zoning districts, along with PUD zoning, are most appropriate toimplement this future land use category.

Policies and Programsa. Promote these developments to be built for owner-occupancy wherever possible, and where approved

for owner-occupancy, attempt to maintain that status through appropriate conditions during thedevelopment approval process.

b. Encourage multiple-family residential building sizes of fewer than 50 units. In any case, the size of thebuilding shall be in scale with the surrounding neighborhood.

c. Meet minimum site, building,landscape, lighting, and other designstandards included in the Housing andNeighborhood Development chapterand the zoning ordinance.

d. Discourage individual multi-family andduplex/townhouse developmentsexceeding 10 acres in size, exceptcondominiums.

e. Discourage distances of less than ½mile between larger areas of multiple-family residential development.

f. Support projects that include a strongprogram for maintaining the quality,value, and safety of the developmentover time.



The “PlannedNeighborhood”

development conceptencourages a mix of housingtypes and gathering places to

4. Planned Neighborhood

DescriptionThe Planned Neighborhood future land use category isintended to provide for a variety of housing choices anda mix of non-residential uses such as parks, schools,religious institutions, and small-scale shopping andservice areas. They are really a collection of differentland use categories listed in this chapter. PlannedNeighborhoods should be carefully designed as anintegrated, interconnected mix of these use categories.They are by no means intended to justify an “anythinggoes” land use pattern. Overall, the composition andpattern of development should promote neighborhoodsthat instill a sense of community with their design.

The Planned Neighborhood concept encourages a mix of Single-Family Residential – Urban, Two-Family/Townhouse Residential, Mixed Residential,Institutional and Community Services, Parks andOpen Space, and Neighborhood Commercial uses.Maintaining a majority of Single Family uses has theeffect of dispersing higher density developmentthroughout the community and limiting theconcentration of any one type of development in anyone area. Appropriate commercial uses includeneighborhood-oriented shopping opportunities, suchas a small grocery store, barber shop, bakery, orpharmacy; smaller employment opportunities (usuallylocated on the edges of these neighborhoods); andeducational facilities (usually elementary schools) forarea residents.

Recommended ZoningThe City’s PUD and TND zoning districts are mostappropriate to implement areas mapped under thisfuture land use category. However, combinations of residential districts, C-2, and PLI zoning may also beappropriate.

Policies and Programsa. Maintain overall residential development densities within Planned Neighborhoods of between 4 and 8

dwelling units per residential acre.

b. Accommodate a mixture of housing types, costs, and densities, while maintaining the predominance ofsingle-family housing in the community.

c. Avoid rezoning any area designated for Planned Neighborhood development until public sanitary sewerand water service is available and a neighborhood development plan and specific development proposalis approved for the site.

d. Require each Planned Neighborhood to be developed following preparation of a detailed neighborhooddevelopment plan by a developer or the City, ideally adopted as a component of the City’s ComprehensivePlan. Such plans shall specify land use mix, density, street layouts, open space, and stormwatermanagement, as described more fully in the Housing and Neighborhood Development chapter.

e. Where alleys are considered for garage and service access, promote their private ownership andmaintenance through a homeowners or condominium association.

f. Adhere to the following design objectives for Planned Neighborhood areas:



Create a distinct sense of place and charming human scale. Strategies include providing publicfocal points with public plazas, greens and squares; creating visual interest; and designatingprominent building sites.

Connect Planned Neighborhoods internally and to adjacent areas through a network of paths,sidewalks, and streets that discourage high travel speeds but still allow access to emergency andmaintenance vehicles (e.g. fire trucks and snow plows).

Design neighborhoods with interconnected open space systems for recreation and progressivestormwater management.

Integrate a mix of uses and densities within and around the neighborhood commercial centers

Preserve and focus attention on environmentally sensitive areas and unique natural features.

Lay out streets, buildings, and public open spaces which take advantage of long views created bylocal topography.



Figure 15: Planned Neighborhoods



Providing places andincentives for good-paying

and lasting tax base willensure that Beloit’s familiesand City government remain

NON-RESIDENTIAL LAND USE CATEGORIES

1. Office

DescriptionThis future land use category is intended for high-qualityoffice, institutional, research, and office-support landuses with very generous landscaping and limited signage,served by public sewer, public water, and other urbanservices and infrastructure. Three areas are designatedwithin this future land use category. They include (a) eastof Downtown, south of Bushnell Street, along GrandAvenue and Park Avenue; and (b) Grand Avenue west ofthe Rock River between 5th Street and 8th Street. Otherareas planned for Community Commercial and BusinessPark use—described later in this section—may also beappropriate for office development.

Recommended ZoningThe City’s C-1 office zoning district and PUD district areamong the zoning districts appropriate for areas mapped under this future land use category.

Policies and Programsa. Market office areas for research and

development uses; corporate offices;professional offices; and certain privateinstitutional uses like medical centers.

b. Prohibit warehousing, assembly andmanufacturing uses in the Officedesignation unless the site is specificallydesigned to blend within anoffice/research setting.

c. Adhere to very high quality site andbuilding design guidelines, and to localordinances on other aspects of thoseprojects like signage, landscaping, andlighting.

d. Avoid rezoning any area designated forOffice development until public sanitary sewer and water service is available and a specific developmentproposal is offered or the City approves an overall development layout and covenants.

e. Require that all projects submit and have approved detailed building elevations and site plans, showingthe proposed locations of the building(s), parking, storage, loading, signage, landscaping, and lightingprior to development approval.

2. Planned Mixed Use

DescriptionThis future land use category is intended to facilitate a carefully controlled mix of commercial and residentialuses on public sewer, public water, and other urban services and infrastructure. Planned Mixed Use areas areintended as vibrant urban places that should function as community gathering spots. This category advises acarefully designed blend of Community Commercial, Mixed Residential, Office, General Industrial, andInstitutional and Community Services land uses.



This Plan’s emphasis onrecycling aging commercialdistricts into vibrant mixeduse centers is at the core ofbuilding a sustainable Beloit.

Several areas on Map 10 have beenidentified for future development orredevelopment as Planned Mixed Usecenters. The graphics that follow presentuse, design, and improvementrecommendations for each area. Theserecommendations will not implementthemselves; instead, a concerted public-private partnership will be necessary tomake these redevelopment initiativeshappen. Required efforts are describedmore fully in the Economic Developmentchapter.

Recommended ZoningThe best option for future zoning of thelands mapped under the Planned MixedUse future land use category is often aPlanned Unit Development zoningdistrict. This district allows the desired mix in uses and provides flexibility in layout, in exchange for superiordesign. The zoning is tied to City approval of a specific plan for the project. Alternatively, the City couldcreate a new mixed use zoning category that couldinclude standards unique for mixed use developments.The City’s C-3 commercial zoning district is alsoappropriate for areas within this future land usecategory.

Policies and Programsa. Actively pursue redevelopment of Planned Mixed

Use areas over the planning period through public-private initiatives. Chapter Seven: EconomicDevelopment includes a description of the desiredimplementation process.

b. Grant development approvals only after submittal,public review, and approval of site, landscaping,building, signage, lighting, stormwater, erosioncontrol, and utility plans.

c. Design mixed use developments in accordancewith the principles included in the applicable figurein the series of Figures 16 through 21.



Figure 16: Prairie Avenue Design Guidelines



Figure 17: Cranston Road Design Guidelines



Figure 18: Park Avenue Design Guidelines



Figure 19: Switch Track Alley Design Guidelines



Figure 20: Madison Road Design Guidelines



Figure 21: K-Mart Site Design Guidelines



3. Neighborhood Commercial

DescriptionThis future land use category is intended forneighborhood-scale residential, office, and neighborhoodsupporting institutional and commercial land uses thatmainly serve the surrounding neighborhoods on publicsewer, public water, and other urban services andinfrastructure. There are several areas throughout theCity—general in close proximity to residentialneighborhoods—that are mapped in this category.

Recommended ZoningThe City’s C-2 commercial zoning district is usually mostappropriate for areas in this future land use designation.

Policies and Programsa. Encourage neighborhood-oriented retail and service businesses and recreational uses in areas that will

conveniently serve City neighborhoods.

b. Require that all proposed commercial projects submit a detailed site plan, building elevations, lightingplan, grading/stormwater management plan, and signage plan prior to development approval.Recommended design standards for commercial development projects are provided in Chapter Seven.

c. In Neighborhood Commercial areas, require the use of high-quality building materials and designs thatare compatible with residential areas, including residential roof materials such as shingles; generouswindow placements; and exterior materials such as wood, cement board, vinyl siding, brick, decorativeblock, stone, and other approved materials.

d. Require calm, low-key, and attractive lighting and signage that are compatible with residential areas.

4. Community Commercial

DescriptionThis future land use category includes large-scalerecreational, commercial, and office land uses, includingnational and regional retailers, which serve the entirecommunity and people from nearby communities onpublic sewer, public water, and other urban services andinfrastructure. Community Commercial land uses arefocused on the City’s far east side and (to a lesser extent)the far west side.

Recommended ZoningThe City’s C-3 commercial zoning district is appropriate for areas within this future land use category. Othercommercial or industrial districts may also be appropriate.

Policies and Programsa. Adhere to site, building, signage, landscaping, and lighting design guidelines for commercial, large scale

retail, and mixed use development projects. Additional detail is provided in the Economic Developmentchapter.

b. Adhere to standards for highway access control, shared driveways, and cross access that are described inthe Transportation chapter.

c. Delay rezoning any area designated for Community Commercial development until public sanitary sewerand water service is available and a specific development or redevelopment proposal is offered for the



site. Existing parcels zoned and/or used for industrial purposes as of the date of Plan adoption maycontinue in that zoning or use.

d. Require that all commercial projects submit and have approved detailed building elevations and site plans,showing the proposed locations of the building(s), parking, storage, loading, signage, landscaping, andlighting prior to development approval.

e. Prohibit the unscreened outdoor storage of equipment or materials, except for automobiles and otherpassenger vehicles.

f. Consider the relationship between development in the Community Commercial areas and existing andfuture development behind these sites. Avoid inhibiting future access to sites behind commercialproperties and creating an unattractive appearance which will inhibit future development of these sites.

g. Encourage uses that are most appropriate for the City’s downtown area to develop or remain in thedowntown, rather than in locations designated as Community Commercial.

5. Downtown

DescriptionDowntown Beloit is intended to remain the civic, social, and commercial hub of the community. Thisopportunity has recently been enhanced through the revitalization efforts in the downtown area.

The Downtown future land use category is mapped overthe historic downtown area. This category is intendedfor a mix of retail, commercial service, office,institutional, and residential (mainly upper stories) usesarranged in a pedestrian-oriented environment with on-street parking; minimal building setbacks; and buildingdesigns, materials, placement, and scale that arecompatible with the character of existing development.

Recommended ZoningThe City’s CBD-1 and CBD-2 zoning districts aregenerally appropriate for areas in this future land usecategory.

Policies and Programsa. Follow the recommendations of the Beloit

Downtown Redevelopment Plan, including Map 9, which provides additional detail on desired futureland uses in the downtown area.

b. Continue to collaborate with the Downtown Beloit Association to implement the recommendations ofthe Downtown Redevelopment Plan.

c. Given its current location at the State line, the downtown is not the geographic center of the City.Because of this, the City will exert substantial effort to ensure that the downtown retains its vitality. Thiswill be particularly important as new commercial areas expand at the interchange, providing even greatercompetition for economic activity.

d. Preserve the architectural and historic character of the core downtown historic buildings. Require thatnew development, expansions, and exterior renovations comply with general design standards in theEconomic Development chapter and more detailed design guidelines adopted by the City.

e. Encourage commercial developments that are most appropriate for the historic downtown to locate orremain there, rather than in other commercial districts in the City.

f. Promote the expansion, retention, and upgrading of specialty retail, restaurants, financial services, offices,professional services, and community uses through marketing, investment and incentive strategies.



Map 9: Downtown Land Use Plan



6. Business Park

DescriptionThis future land use category is planned for the GatewayBusiness Park and the I-90 Business Park on the City’seast side, including future expansion areas. TheDowntown Redevelopment Plan also includes an areafor an urban business park described in more detail inthe Downtown Plan. For lands within this category,predominate uses will include high-quality indoormanufacturing, warehousing, distribution, office,research and development, recreational, and businesspark support uses (e.g., day care, hotel, health club,bank). Development will include generous landscaping,screened storage areas, and modest lighting and signage.

Recommended ZoningThe City’s M-1, M-2, C-1, and PUD zoning districts are appropriate for areas within this future land usecategory, which may also be subject to covenants.

Policies and Programsa. Promote the Gateway Business Park as the premier location in southern Wisconsin for modern

industrial, office, and related economic development. The Economic Development chapter includesmore detailed information.

b. Provide improved, pre-zoned sites and incentives to facilitate development recruitment.

c. Adhere to adopted covenants and zoning standards for new and expanded development projects, andordinances on other aspects of those projects like signage, landscaping, and lighting. Additional detail isprovided in the Economic Development chapter.

d. Require that all projects submit and have approved detailed building elevations and site plans, showingthe proposed locations of the building(s), parking, storage, loading, signage, landscaping, and lightingprior to development approval. The City may actively facilitate the “pre-approval” of basic site plansubmittals.

e. Do not require an amendment to this Plan if existing platted roads and lots within the Business Park arerealigned.

7. General Industrial

DescriptionThis future land use category is intended to facilitate manufacturing, warehousing, and distribution land useswith controlled outdoor storage areas, with moderate landscaping and signage, served by public sewer, publicwater, and other urban services and infrastructure. General Industrial areas are mapped on the City’s east side,near the Downtown, and in the Prairie Avenue area.

Recommended ZoningThe City’s M-1 and M-2 industrial zoning districts are most appropriate for areas within this future land usecategory.

Policies and Programsa. As opportunities for reinvestment and redevelopment occur, improve the appearance of building facades

exposed to the public view, including loading docks and storage areas.

b. Encourage the use of high quality building materials, improved window treatments, high- quality loadingand storage screening devices and landscaping.



c. Ensure that future industrial development is appropriately buffered from existing and planned residentialdevelopment areas.

d. Adhere to adopted site and building design guidelines for industrial projects, and ordinances on otheraspects of those projects like signage, landscaping, and lighting. Additional detail is provided in theEconomic Development chapter.

e. Require that all industrial projects submit and have approved detailed building elevations and site plans,showing the proposed locations of the building(s), parking, storage, loading, signage, landscaping, andlighting prior to development approval.

8. Institutional and Community Services

DescriptionThis future land use category is designed to facilitate large-scale public buildings, schools, religious institutions,power plants and substations, hospitals, and special carefacilities. Maps 10 and 12 generally show existing locationsof such facilities. Future small-scale institutional uses mayalso be located in areas planned for residential,commercial, office, industrial, mixed, or traditionalneighborhood uses, while larger-scale institutional usesshould generally be avoided in planned residential orPlanned Neighborhood areas.

Recommended ZoningThe City’s PLI zoning district is most appropriate forareas mapped within this future land use category, thoughother districts may also be appropriate, particularly in thedowntown and for smaller-scale institutional uses in neighborhoods.

Policies and Programsa. Require and review a detailed site and operations plan before new or expanded institutional uses are

approved.

b. Consider the impact on neighboring properties before approving any new or expanded institutional use.

c. Continue to work with Beloit College and the Beloit School District to coordinate uses and activities oncollege- and district-owned land.

d. Encourage collaboration among the Public Works, Fire, and Police Department, and other providers ofCity services, on accommodating future service needs, as described in greater detail in the CommunityFacilities, Utilities, and Services chapter.



RURAL/ENVIRONMENTAL LAND USE CATEGORIES

1. Environmental Corridor

DescriptionThis future land use category includes generallycontinuous open space systems based on lands that havesensitive natural resources and limitations fordevelopment. This category includes Wisconsin DNRidentified wetlands subject to existing State-mandatedzoning, FEMA designated floodplains, waterway anddrainageway buffers, and slopes of 20 percent or greater.

Recommended ZoningThere are several options for zoning of environmentalcorridor areas depending on use. The City’s PLI zoningdistrict is appropriate for areas of environmentalcorridor that are public recreational areas, such as the Turtle Creek Greenway.

Policies and Programsa. Prohibit new development in mapped Environmental Corridor areas.

b. Where development is proposed in or near mapped Environmental Corridors, the developer shoulddetermine the exact boundaries of the Environmental Corridor based on the features that define thoseareas. These lands may be considered for more intensive uses if (1) more detailed information or studiesreveal that the characteristic(s) that resulted in their designation as an Environmental Corridor is notactually present, (2) approvals from appropriate agencies are granted to alter a property so that thecharacteristic that resulted in its designation will no longer exist, or (3) a mapping error has beenidentified and confirmed.

c. Preserve, protect, and enhance open spaces and conservancy areas along the Rock River, Turtle Creek,and Springbrook Creek.

d. Develop stream bank buffer landscaping standards for property owners with river frontage orenvironmental corridor adjacent to their property.

e. Preserve woodlots and other environmental areas that serve to protect wildlife and vegetative resources.

f. Continue to allow existing agricultural uses (cropping, grazing, or other preexisting agricultural uses)within Environmental Corridors.

2. Parks and Open Spaces

DescriptionThis future land use category includes park and publicopen space facilities devoted to playgrounds, play fields,trails, picnic areas, and related recreational activities, andconservation areas.

Recommended ZoningThe City’s PLI zoning district is most appropriate forthese areas.

Policies and Programsa. Provide parks within safe walking distance of all

residential neighborhoods.

b. Continue to preserve a “greenway” corridor along



Turtle Creek to provide recreational opportunities and protect sensitive natural areas.

c. Follow the recommendations of the City’s Parks and Open Space Plan when acquiring new parkland ormaking changes to current parks.

d. See the Utilities, Community Facilities, and Civic Organizations chapters for more recommendationsregarding Parks and Open Spaces.

3. Single Family Residential - Exurban

DescriptionThis future land use category is intended for singlefamily residential development on private well and on-site waste treatment (septic) systems, generally atdensities between 1 dwelling unit per acre and 1dwelling unit per 35 acres. This area is mapped in theCity’s extraterritorial jurisdiction only, in limited areaswhere single family residential development of this typehas already occurred along with “infill” sites betweenlargely developed areas.

Recommended ZoningThis category is mapped in areas outside the municipalboundary, and is therefore subject to Town zoning.

Policies and Programsa. Allow land divisions in these areas where local zoning and City subdivision ordinances allow for them.

b. Require sensitivity towards natural resources and water quality with new development projects, includingassurances that concentrations of on-site waste treatment systems will not negatively affect groundwaterquality and that stormwater will be properly managed according to best practices.

c. Assure that new development in these areas does not impede the logical future extension of municipalutilities or City growth.

4. Agriculture

Description:This future land use category is intended to preserve productive agricultural lands and protect existing farmoperations from encroachment by incompatible uses. This category focuses on lands actively used forfarming and/or with productive agricultural soils and topographic conditions suitable for farming. It alsoincludes woodlands and other open space areas not otherwise shown as Environmental Corridors. Lands inthis category also include farmsteads, cottage industries, agricultural-related businesses, “value-added” farmproduction, and limited residential development at densities at or below one home per 35 acres.

Recommended Zoning:These lands are subject to Town zoning, and should generally be zoned for exclusive agricultural use.

Policies and Programs:a. Within Agriculture category areas, limit new development to a density of one residential dwelling unit per

35 acres to protect productive agricultural land and farms, maintain a viable agricultural base, reduceconflicts between potentially incompatible uses, and reduce costs of service provision. This standard doesnot require that all new lots be at least 35 acres. See Figure 22 for alternative approaches for achievingthis maximum density.



Figure 22: Examples of Conventional and Conservation Development



Limiting premature, rural“edge” development allows a

more energy-efficient andsustainable future urban

development pattern.

b. Develop a system of tracking and calculation of allowable new dwelling units on parcels in theAgriculture category under the “1 per 35 acre” policy. The following approach shall be utilized until asubstitute or refined approach is adopted as part of the City’s subdivision ordinance:

Determine the gross site area of the contiguous lands held in single ownership as of the date ofadoption of this Comprehensive Plan.

Divide the gross site area of the contiguous lands held in single ownership by 35. This is the totalnumber of new dwelling units that will be allowed on the land.

Subtract from that total the number of new dwelling units that have already been constructed onthe contiguous lands held in single ownership since the date of adoption of this Plan. This is thetotal number of dwelling units that are left to be allowed.

c. Prohibit the development of subdivision plats (five or more lots within a five-year period) within theAgriculture category, except where such development will be consistent with the density policy clusteringas per paragraphs (a) and (b) above.

d. Discourage duplexes, multiple-family residences, or commercial uses that are not geared towardagriculture in Agriculture areas.

e. Support farmland tax credits, use value assessments, reform in federal farm laws, and other programs thatencourage the continued use of land for farming.

f. Encourage preservation of wooded areas. In particular, the City should encourage preservation ofwooded areas on slopes of 12 percent or greater.

g. The Agricultural, Natural and Cultural Resources chapter of this Plan has additional policies andprograms related to agricultural preservation in the Beloit area.

5. Long Range Urban Growth Area

Description:This overlay future land use category defines several areasthat may be appropriate for long-term City developmentbeyond the present 20-year planning period, or at theexpiration of current intergovernmental agreements.Premature exurban development and premature utilityextensions should not be promoted in these areas. Thepolicies of the Agriculture future land use category willapply until such time as more intensive development maybe appropriate. The Long Range Urban Growth Areafocuses on lands used for farming, but also includesscattered open lands and woodlots, farmsteads,agricultural-related uses, and limited single-familyresidential development at densities as described in theAgriculture designation. Development beyond these usesand densities should be deferred based on the policiesdescribed below.

Policies and Programs:a. Within the Long Range Urban Growth Area, new development should be limited in accordance with all

policies applicable to the Agriculture designation, until such time when the City identifies that particularmapped area as appropriate for more intensive development through an amendment to this Plan.

b. All non-farm development projects approved within the Long Range Urban Growth Area shall bedesigned and laid out in such a manner to not impede the orderly future development of the surroundingarea, at such time when the City identifies that area as appropriate for more intensive development.



The City’s designated “SmartGrowth” areas are theessence of sustainable

development: true mixed-useredevelopment and infill

c. The City may, following initial adoption of this Comprehensive Plan, identify lands within the Long RangeUrban Growth Area as appropriate for more intensive development through an amendment to this Planif the following standards are met:

The proposed development is justified by growth forecasts.

The proposed development is likely to have a positive fiscal impact.

The proposed development would be economically and financially feasible.

The proposed development would serve an identified short-term need for additionaldevelopment in the City, and that need is not being met by other existing developments in theCity.

The property owner or developer has met with nearby property owners and made a good faitheffort to address their concerns.

The City has conducted a meeting to obtain public input.

The proposed development will not have a substantial adverse effect upon adjacent property orthe character of the area, including adjacent agricultural or residential uses.

The proposed development is in accordance with applicable intergovernmental agreements andlaws.

L. Smart Growth Areas

Wisconsin’s Comprehensive Planning law requires thatcommunities identify “Smart Growth Areas” in theircomprehensive plans. Smart Growth Areas are defined as“areas that will enable the development and redevelopmentof lands with existing infrastructure and municipal state,and utility services, where practical, or that will encourageefficient development patterns that are contiguous toexisting development and at densities which will haverelatively low municipal, state governmental, and utilitycosts.” The City’s Plan designates Smart Growth Areas asthe following:

Continued revitalization, redevelopment and infill inthe downtown area, as further described in the BeloitDowntown Redevelopment Plan.

Redevelopment and revitalization of other central cityand riverfront areas that are identified andimplemented through the Beloit 2020 organization andits plans.

Planned Mixed Use development areas described in this chapter and depicted on Map 10 and in Figures16 through 21.

Residential, commercial, office and industrial “infill” areas in portions of the City already served byutilities and services.

Strategies for developing and redeveloping these areas are outlined throughout in this Comprehensive Plan.



Map 10: Future Land Use

City of Beloit Comprehensive Plan Chapter VII: Housing and Neighborhood Development


Chapter VII: Housing and Neighborhood Development

Help revitalize older neighborhoods through a variety of approaches within targeted areas inpartnership with neighborhood and non-profit organizations.

Support quality housing at all levels, including workforce housing and executive housing, tocontribute to the diversity, character, and economic vitality of the City.

Actively promote homeownership as a means to achieve stable neighborhoods.

Design new neighborhoods to encourage resident interaction, promote “walkability,” and create adistinct sense of place.

Prepare or require detailed neighborhood development plans for large areas in advance ofsubdivision plat approvals for smaller pieces of those areas.

Require quality housing design, including multi-family residential developments.



The Housing and Neighborhood Development chapter establishes goals, policies, and programs to assurethat there is an adequate supply of decent housing to meet present and future demand. The policies andrecommendations also support the interest in achieving high-quality neighborhoods.

The fabric of a healthy, sustainable neighborhood is created through the interaction of neighborhoodconditions, existing assets, residents’ priorities and capacities, and the level of neighborhood support andleadership. All neighborhoods, new and old, require attention and tending to ensure that pieces of the fabricdo not fray. When it does, mending the fraying pieces becomes a priority.

A. Housing and Neighborhood Development Framework

This section describes the characteristics of the City’s housing stock including type, value, occupancy status,age and structural condition. This section also provides projected housing demand in the City and describeshousing development and rehabilitation programs available to City residents.

1. Housing Condition and AgeThe age of a community’s housing stock is one measure of the general condition of the community’s housingsupply. A casual survey of the housing stock in the City reveals that the housing is in generally goodcondition, regardless of age. Given the long history and slow growth of the City, it is not surprising that themajority of the housing stock was constructed before 1959. Approximately 60% of housing units in the Cityof Beloit were constructed before 1960, which is significantly higher than similarly sized communities.

2. Housing CharacteristicsFigure 29 compares the City’s housing types between 2000 and 2015. Overall, there was little change in thecomposition of the City’s housing types. Approximately three-quarters of all housing units in the Beloit aresingle family homes, with a slight decrease in single-family detached and increase in single-family attacheddwellings. The number of two-family or duplex units decreased significantly between 2000 and 2015, likelydue to many nonconforming duplexes in single-family districts losing their legal nonconforming status. Two-family dwellings now account for only for six percent of the City’s housing stock. The percentage of multi-family units in Beloit increased slightly from 2000 to 2015 with the completion and occupancy of severallarge-scale apartment complexes.

Figure 29: City of Beloit Housing Types, 2000 & 2015

Number PercentUnits per Structure 2000 2015 2000 2015Single Family Detached 10,290 10,844 72.2 70.6%Single Family Attached 219 605 1.5 3.9%Two Family (duplex) 1,468 934 10.3 6.1%Multi-Family: 3 or more units 2,083 2,821 14.6 18.3%Mobile Home 193 151 1.4 1%Total 14,253 15,355 100 100Source: U.S. Census (2000) and American Community Survey (2011-2015)

Figure 30 compares other 2012-2016 housing value characteristics in Beloit with surrounding communities. Itis worthwhile and important to note that the housing market has improved drastically in Beloit during thepast two years, so any and all 2012-2016 housing data should be viewed in light of the possible irrelevancy ofsaid data. The percentage of owner-occupied housing units in the City was relatively low in comparison to thesurrounding communities—suggesting that a fairly significant percentage of the City’s single family housing iscurrently being rented. The median value of owner-occupied units was lower than median values in nearbymunicipalities, although we know that strong demand and low supply is causing upward pressure on housingvalues not seen since before the Great Recession. Interestingly, the median gross rent in Beloit is on par withthe median gross rent in nearby municipalities, suggesting that Beloit is a profitable place to be a landlord.



Indeed, this presents another barrier to the reversion and rehab of multi-unit nonconforming rentalproperties into owner-occupied units, and is a topic worthy of further analysis.

Figure 30: Housing Value Characteristics

City ofBeloit

Town ofBeloit

City ofSouth Beloit

City ofJanesville

Percent Owner Occupied 58.6% 78.7% 72.4% 65.8%Median Value of Owner-OccupiedUnits

$85,000 $118,900 $122,400 $129,300

Median Gross Rent $727 $832 $670 $765

Source: U.S. Census American Community Survey (2012-2016)

3. Existing Neighborhood Development PatternBeloit’s current pattern of neighborhood development greatly influences the character of the City. With aunique combination of historic established neighborhoods and new residential areas, Beloit offers a widerange of neighborhood settings.

Beloit’s historic neighborhoods are located near the Downtown on both sides of the Rock River near theheart of the City. The Merrill neighborhood is located north of White Avenue east of the Rock River. Thenear westside neighborhood is located south of Liberty Avenue west of the Rock River. There is also anestablished near eastside neighborhood surrounding Beloit College. These residential areas are characterizedby traditional homes on smaller lots with a “grid” street pattern. They represent the fabric of the City.

Beloit also has new residential areas on the periphery of the City. These developments include The Oaks,Deerfield, Walnut Grove, Parkmeadow, and Eagles Ridge subdivisions. These areas are characterized bylarger lots and homes laid out in a curvilinear design, where streets follow the natural contours of the landrather the traditional “grid” pattern.

4. Housing Agencies and ProgramsThere are several agencies and programsoperating in Beloit with the goal ofimproving housing opportunities, includingthe following:

Beloit Housing AuthorityThe Beloit Housing Authority (BHA)assists in providing adequate and affordablehousing, economic opportunity, and asuitable living environment free fromdiscrimination for low-income, elderly anddisabled residents in the Beloit community.The Authority manages 131 units forfamilies and individuals. These propertiesare federally funded through theDepartment of Housing and UrbanDevelopment (HUD), and administered by the Beloit Housing Authority. The BHA also administers 598Housing Choice Vouchers as part of the Section 8 Program. The program is designed to assist very low-income families in renting, or continuing to rent decent, safe, and sanitary housing at costs they can afford.Additional program information is available through the City.



Community Action Inc.Community Action Inc. of Rock and Walworth Counties is a private, non-profit community service anddevelopmental agency. Services focus on enabling residents to become or remain socially and financially self-sufficient and include emergency shelter for the homeless, free health care services for women, and assistancewith child care. In addition to programs administered by Community Action, the agency also works withother institutions and organizations in the communities it serves to coordinate efforts to assist low-incomeindividuals and families. Community Action is currently purchasing houses in the Merrill neighborhood,rehabilitating them, and reselling to low income home owners.

NeighborWorks Blackhawk RegionEstablished in 1979, NeighborWorks Blackhawk Region (formerly known as Neighborhood HousingServices) is a private, not-for-profit organization working to build the Beloit community through programsthat support homeownership, residents, and community development. NeighborWorks strives to providequality services to first-time home buyers, current home owners, and quality rental property owners, includingeducation and counseling, down payment assistance, and emergency loans.

Community Development Block Grant and HOME ProgramsIn 1974, the federal government established the Community Development Block Grant (CDBG) program toprovide cities with funds to help meet the needs of low– and moderate-income residents and eliminatesubstandard housing and blight. Later, the federal government established the HOME InvestmentPartnerships Program, to focus in particular activities that build, buy, and/or rehabilitate affordable housingfor rent or homeownership or provide direct rental assistance to low-income people.

The City of Beloit receives annual CDBG and HOME allocations from the Department of Housing andUrban Development (HUD) for local use. There are certain guidelines as to the types of programs eligible forCDBG and HOME funds. In addition, the City of Beloit establishes local priorities for funding to meetspecific local needs. The funds are managed locally by the City of Beloit’s Division of Community & HousingServices, which is responsible for ensuring that all funded agencies manage those funds in accordance withHUD guidelines.

To continue to receive CDBG and HOME funding, the City is required to prepare a three to five yearstrategic plan. The 2015-2019 consolidated plan identifies renters and elderly homeowners as populationswith priority housing needs including rehabilitation and other housing assistance. Strategies for addressingthese needs are focused on upgrading the City’s older housing stock, promoting homeownership, and helpinghomeowners stay in their homes. Specific objectives include:

Develop a variety of housing alternatives in order to satisfy a wider range of housing needs.

Use the existing programs and resources to improve Beloit’s older housing stock.

Promote the conversion of rental to owner-occupied housing in neighborhoods with unusually highpercentages of rental properties.

Promote homeownership as an alternative to renting for qualified households.

Support programs that enable homeowners to retain their homes.

Support neighborhood revitalization efforts.

Other Housing ProgramsOther housing programs available to City of Beloit residents include home mortgage and improvement loansfrom the Wisconsin Housing and Economic Development Authority (WHEDA) and home repair grants forthe elderly from the U.S. Department of Agriculture. The Housing Cost Reduction Initiative (HCRI) alsofunds activities such as emergency rental aid, homeless prevention efforts, and related housing initiatives.Further information on these programs can be obtained by contacting WHEDA.



Neighborhood Revitalization Strategy Areas (NRSA)

The Neighborhood Revitalization Strategy Areas (NRSA) was developed to outline practical actions steps fora coordinated response to addressing various concerns in the community of Beloit, specifically related todeteriorating properties, vacant and abandoned housing, an increasing number of rental properties, high ratesof poverty and unemployment, and an increase in violent crimes. The development of the NRSA allows theCity to use Community Development Block Grant (CDBG) funding more flexibly. This plan providesspecific action steps towards overall economic empowerment and improved housing opportunities and wassubmitted as an amendment to the City’s 2015-2019 Consolidated Plan.

The scope of the NRSA examines trends throughout the City of Beloit, but focuses on the Hackett andMerrill neighborhoods, which are census tract 16, block groups 1-4 and census tract 18, block groups 1-4respectively. The economic indicators described in this NRSA illustrate a wide gap in economic prosperity inthe two NSRA neighborhoods compared to the City as a whole. Numerous factors related to deterioratinghousing stock, high crime, and lack of availability to job training and economic resources has negativelyaffected economic prospects of residents in both NRSA areas.

The City embarked on a fact finding and solution driven mission in early 2015 as a result of business ownersand residents voicing concerns regarding crime, property deterioration, and lack of resources for residents inneed.

Mapping: The City began mapping incidents of crimes against people, crimes against property, vacant andabandoned housing, code violations, income levels, residential property values, and other demographic data inorder to identify patterns and concentrations. Although many of the negative data patterns were spread city-wide, some clustering was evident in Census Tracts 16 and 18, the Hackett and Merrill Neighborhoodsrespectively.

Community Input: The City used a number of efforts to obtain community input in order to identify theneeds of Beloit residents, Hackett and Merrill neighborhoods, businesses, and other community stakeholders.These efforts included individual interviews, stakeholder meetings, community listening sessions,neighborhood tours, and an online survey. The City also consulted with a variety of public services agencies,community organizations, business leaders, and other City Departments.

Identification of Needs: The needs of the community fell into three general categories: Neighborhooddeterioration and instability, lack of resources for residents to succeed, especially youth, and a general feelingof insecurity. Accordingly, the Plan is grouped by strategies for neighborhood revitalization, residentempowerment, and public safety.

Research and Analysis: The City conducted new research and reviewed previous research materials regardingcommunity needs, gaps in services, and possible solutions. The City also consulted with agencies locatedthroughout Rock County and Beloit to assess current resource capacity and to develop coordinated efforts tofill gaps that meet the needs of the people.

Vision and Goals: The City identified six common goals for the Plan and developed an overall vision.Strategies and objectives included in the NRSA Plan meet at least one of the six common goals that wereidentified.

• Vision: Establish safe, healthy, and stable neighborhoods, and ensure all Beloit residents havemeaningful opportunities for economic stability and growth.

• Goals: (1) reduce crime, fear, and disorder; (2) provide opportunities for job growth and education thatcreate meaningful jobs for unemployed and low-moderate income residents; (3) encourage



collaboration and coordination between community organizations; (4) improve the physicalenvironment of the City’s neighborhoods; (5) provide positive outlets for youth in the community; (5)restore a strong sense of community pride.

Neighborhood Revitalization: The City developed three objectives with action steps that will improve thequality of the housing stock, reduce the number of vacant and abandoned properties, and increase thenumber of long term residents in the NRSA neighborhoods. The City identified partner agencies and willwork closely with them to strategically align activities and target various financial resources in both NRSAneighborhoods.

Resident Empowerment: The City worked closely with Community Action, Inc. to develop strategies toaddress the needs of residents in the NRSA neighborhoods and to increase economic empowerment. Fiveobjectives were developed that include action steps to increase programming for job training and life skillseducation, create additional programming for youth, increase the involvement of residents in theirneighborhoods, improve race relations in the community, and connect residents to financial and supportiveresources they need to be successful.

Public Safety: The City worked closely with the Beloit Police Department to develop three main objectives toimprove overall public safety in the Beloit Community. Actions steps outline how the Police Department willimplement community policing strategies, enhance statistical data, and improve transparency regarding crimeand prevalence of crime.

Wisconsin Historical Society’s Historic Homeowners Tax Credit ProgramThere are three existing historic districts and one proposed district in the City of Beloit. As an incentive topreserve and enhance historic homes, homeowners in these districts are eligible to apply for a tax creditagainst their state income taxes of up to 25% of project costs. Eligible projects include exterior work as wellas interior projects such as electrical, plumbing, and HVAC.

Beloit Memorial High School Student House BuildFor the past several years, Beloit Memorial High School has partnered with local contractors to have studentsparticipate in the construction of a new single-family home. Once completed, each home is sold with theproceeds sustaining the next project. The School District of Beloit recently acquired several buildable lots onTrevino Court that will be used for this program during the next several years.

Neighborhood AssociationsNeighborhood Associations and informal groups can be a key factor in neighborhood health, and animportant conduit between City Hall and the people who live in a neighborhood. The results of the publicopinion survey revealed that few of Beloit’s neighborhoods have known names and/or neighborhood groups.This presents a significant opportunity to engage residents in the naming or re-naming of neighborhoods inan effort to promote neighborhood identify and pride, and to encourage connections between residents. Therise of social media has presented a new platform for neighborhood organization and communication thatshould be an integral part of this effort.

B. Housing and Neighborhood Development Goals, Objectives and Policies

1. Goala. Support a variety of housing types and costs and quality neighborhoods to promote a desirable living

environment for all residents.

2. Objectivesa. Provide a range of affordable housing types to address the demands of various age groups,

household types, income levels, and those with special needs.

b. Promote neighborhood stability through long-term residency, whether owner occupied or rental.



Neighborhoods that aresustainable from a

socioeconomic perspectivehave a mix of housing types,

c. Promote high quality, safe housing and living environments that enhance existing neighborhoods,maintaining reasonable densities and promoting a sustainable owner-renter ratio.

d. Require City neighborhoods to be served by a full range of urban services and close to keydestinations for residents.

e. Encourage housing designed and constructed for working professionals offering modern amenitiesand connectivity to existing employers and goods & services.

f. Encourage well-designed neighborhoods, with a mix of housing types oriented towards pedestriansand well served by sidewalks and bicycle routes.

3. Policiesa. Encourage a housing mix in all

neighborhoods that focuses onowner-occupied housing, yet providesopportunities for rental housing. Ingeneral, neighborhood stability andhealth are strongest when the ratio ofowners to renters is at least 50/50,with greater percentages of ownersleading to healthier neighborhoods.The City will strive to achieve theseratios in new and existingneighborhoods.

b. Encourage that the development ofnew neighborhoods comply with theCity’s historic housing mix, in orderto maintain the character of thecommunity while allowing forhousing choice. Within each continuous area designated as a “Planned Neighborhood” on the FutureLand Use map (Map 10), seek a housing mix where the majority of all housing units are in singlefamily residences, with two-family dwellings and multiple family dwellings (3+ units per building,regardless of occupancy) to diversify the land use mix. For two-family and multiple-family units, seekto maximize the percentage of such units that will be available for owner-occupancy. For singlefamily units, seek a mix of lot sizes.

c. Guide new housing and neighborhoods to areas with convenient access to commercial andrecreational facilities, transportation systems, schools, shopping, services, and jobs.

d. Accommodate and promote the development of executive-style single-family dwellings on various lotsizes to help with business recruitment and boost the City’s residential tax base.

e. Promote the development of quality workforce housing to help with business recruitment.

f. Promote upper story housing in Downtown Beloit as described more thoroughly in the BeloitDowntown Redevelopment Plan.

g. Plan for multiple-family developments in parts of the City where streets and sidewalks can handleincreased volumes of traffic; there are adequate parks, open space, and shopping facilities existing orplanned; and utility systems and schools in the area have sufficient capacity. Disperse suchdevelopments rather than planning for large multiple family housing developments in isolated areas.

h. Design neighborhoods to protect environmental resources, encourage resident interaction, promote“walkability”, and create a sense of place, following the “Planned Neighborhood” design guidelinespresented in Chapter Four: Land Use.



Beloit’s urban neighborhoodsare a model of sustainability—compact development; mixed

uses; proximity to jobs,shopping and services; and on

existing utilities, roads, and

i. Require residential developers and builders to complete development and provide infrastructureimprovements, including parks and streets, in partially developed existing subdivisions prior toplatting new development areas or additions.

j. Require developers to help fund safe and efficient pedestrian and bicycle access between residentialneighborhoods and nearby community facilities (e.g. bus routes, parks, and schools).

k. Encourage infill development of various types and styles that can utilize existing infrastructure,especially on vacant lots. Promote creative solutions and ongoing dialogue between City staff anddevelopers to best integrate developments into existing neighborhoods.

l. Explore a pilot program to waive permit fees for new single-family construction in the NRSA areason vacant or underutilized lots.

m. Continue the City’s proactive code enforcement policy with strict consequences for continuedviolations.

n. Work to increase property values in existing City neighborhoods through concerted efforts towardsrevitalization. Explore a pilot program to name or re-name existing neighborhoods to enhanceneighborhood identity, pride, and connections.

o. Consider the use of the Health Impact Assessment (HIA) process to support health considerations indecisions that impact the built environment, such as large-scale new subdivisions, largeredevelopments, infrastructure expansions, etc. Partner with the Rock County Public HealthDepartment and allied organizations to complete HIA’s for public and private projects.

p. Implement a multi-layered approach to promoting housing affordability of various types, through theupdate of the 3-5 Year Strategic Plan required for the City’s CDBG/HOME program.

q. Implement new state-imposed housing report mandates relating to development fees and housingaffordability by effective date of January 1, 2020.

C. Recommendations and Programs for Existing Neighborhoods

The continued revitalization of neighborhoods like Merrill and Hackett are essential to provide a decent livingenvironment for their residents. Further, their revitalization will enhance the City as a whole. For example,neighborhood revitalization will complement and enhance the community’s investment in its Downtown,perhaps by providing the type of urban neighborhoods that are attractive to young professionals, emptynesters, and young families.

The key to revitalization is targeting publicservices, initiatives, and investment in specificareas within the neighborhoods with the goal ofencouraging and leveraging private investment byboth for profit and non-profit builders andproperty owners. Concentrating resources in aparticular area or section of a neighborhoodincreases the likelihood for the successfulrevitalization of the entire neighborhood. As thetargeted part of the neighborhood improves, thebenefits reverberate through the surroundingneighborhood. Through the strategicimplementation of this investment approach overtime, entire neighborhoods can be transformed.

The crucial components to the long termsuccessful implementation of this targetedstrategy include public/private (non-profit andfor-profit) partnerships, proactive code



enforcement, comprehensive public safety initiatives, incentives for housing rehabilitation and newdevelopment, on-going resident participation and buy-in, and, most importantly, political will and leadership.

The following are specific programs and recommendations to promote the revitalization and continuedattention to Beloit’s existing neighborhoods:

1. Implementation of the Actions Steps in the Neighborhood Revitalization Strategy AreasThe City will lead, support, and promote action steps that will achieve all six of the goals identified in theNRSA.

2. Improve Connections to Neighborhood Groups and ResidentsTo improve City-neighborhood relationsand to promote neighborhood pride,identity, and connections, the City may starta pilot program to name or re-name existingneighborhoods. This may include supportingthe creation of neighborhood associationsand/or parent support groups.

The City will also work with neighborhoodgroups to explore options for supportinglocal public improvement projects byneighborhood groups and associations, suchas neighborhood signs, public art, banners,and other streetscape improvements.

3. Maintain Other Partnerships forLasting Success

In an era of scarce public resources, theimportance of coordinating efforts across all City departments and partnering with other civic organizationsto improve housing and neighborhoods cannot be underestimated.

To this end, the City will coordinate among the Departments of Community Development, Police, PublicWorks, and Public Health to include neighborhood safety, public improvements, and code enforcement in itsneighborhood improvement initiatives. Targeted investment in specific areas should be in conjunction withother major capital or private sector investments.

In addition to the City, many organizations in the Beloit area are working to meet the housing needs of localresidents. These organizations include NeighborWorks, the Beloit Housing Authority, and CommunityAction, Inc. Housing issues in the City should be addressed through the concerted effort of all these groupsand the City in targeted neighborhoods.

4. Continue Housing Improvement InitiativesThe City will continue to focus on improving the conditions of existing housing within its central cityneighborhoods, including but not limited to the following ongoing efforts:

Providing incentives for housing upgrades and homeownership increases through use of CDBG/HOMEfunding and partnerships with other organizations.

Within targeted neighborhoods, continuing to pursue the purchase of vacant, dilapidated, and taxdelinquent housing for rehabilitation and resale for owner-occupancy.

Continuing proactive code enforcement policy with strict consequences for continued violations.

Maintaining the current policy of downzoned central city neighborhoods, focused on reverting formersingle family houses back to single family use and reducing the incidence of multiple units on a single lot.Consider the impact of this policy on buildings originally built for more than single family use, perhapsthrough minor zoning text changes.



D. Recommendations and Programs for New Neighborhoods

Building off of some of the policies listed in Section B, the following are programs and recommendations topromote high-quality and affordable housing and neighborhoods in the Beloit area, focused in particular onnewer neighborhoods near the City’s fringe.

1. Support Provision of Quality New Housing at all LevelsHousing is not simply part of the framework of the City; it also contributes to its economic vitality. In orderfor the Beloit area to grow economically, housing is needed to meet diverse job opportunities. Businessesneed access to workers, and workers need quality housing they can afford. A range of housing types, fromworkforce housing to executive housing, is an asset to the City. It promotes attachment to the community byproviding housing for all stages of life, and lends richness to community life through variety and balance. Tothis end, the City will continue to promote a range of housing choices in new neighborhoods, consistent withthe policies laid out earlier in this chapter.

2. Require Neighborhood Development Plans in Advance of Subdivision of New NeighborhoodsThe Land Use chapter includes a description of the “Planned Neighborhood” future land use category, whichis intended to provide for a variety of housing choices and a mix of non-residential uses such as parks,schools, religious institutions, and small-scale shopping and service areas. These areas are mapped on Map 10for future development in different parts of the City. The complexity of “Planned Neighborhood” areassuggests the preparation of detailed neighborhood development plans to further guide development of theseareas. A neighborhood development plan would be prepared by a developer, a group of property owners, orthe City, in advance of the approval of individual subdivision plats within the area it covers.

Neighborhood development plans specify in greater detail land use mix, density, street layouts, open space,and stormwater management than are possible within this Comprehensive Plan. They also suggest importantconnections between individual property ownerships and future subdivision plats. These neighborhooddevelopment plans would ideally be adopted as a detailed component of the City’s Comprehensive Plan oncecompleted.



Preparing Neighborhood Development Plans – A Recommended Process

The following planning process has a proven track record of success:

I. Analysis: A wide variety of site specific information must be collected about both existing andemerging conditions:

A. Establish and confirm the full neighborhood design process, including the creation of an ad-hoc or blended oversight committee including and/or reporting to the Plan Commission andCity Council;

B. Collect existing map and plan data for the area and its surroundings related to parcels,topography, soils, land cover and uses, utilities, transportation, recreation, public services, planrecommendations, zoning and property ownership;

C. Evaluate the existing and emerging real estate market;D. Employ meaningful public participation to help identify opportunities & constraints, and to

help create a vision for the area; and,E. Conduct property owner, agency and stakeholder interviews.

II. Plan: Based on the results of the Analysis phase, prepare a detailed Neighborhood DevelopmentPlan as derived from the consideration of a Preliminary Concept Plan, Alternative Concept Planswhere options are many, and a Refined Draft Neighborhood Plan:

A. Refine and confirm the neighborhood vision;B. Draft and confirm a Preliminary Concept Plan depicting the general arrangement of land uses,

development character, main roads and stormwater management facilities, pedestrian & bicyclenetworks, and the open space system. For more complex neighborhoods with a variety ofoptions, produce and confirm one or more Alternative Concept Plans;

C. Present Preliminary Concept Plan or Alternative Concept Plans for review by the public,stakeholders, agencies and the committee. An alternatives Open House with rating sheets is anexcellent method to receive general public input;

D. Produce and confirm a Draft Neighborhood Development Plan based on the responses to thePreliminary or Alternative Concept Plans.

E. Refine and adopt the Neighborhood Development Plan, and ultimately integrate it into theComprehensive Plan as an amendment.

III. Implementation: Following neighborhood development plan adoption, establish and apply theappropriate regulatory and procedural foundation to ensure full implementation:

A. Facilitate developments consistent with that plan;B. Establish zoning districts and boundaries in compliance with the plan;C. Review proposed land divisions, conditional use permits and planned developments based on

conformance with the plan, including consideration of land use pattern, density/intensity,community character, and infrastructure recommendations.

REPORTS AND PRESENTATIONS TO CITY COUNCIL · new housing in the City, with the majority...

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