LAND-USE
Contents
Introduction 291
Objective 1: Establish Sensitive Land Use Patterns 291
Land Use Target Areas 294
Objective 2: Alternative Land Use Controls 297
Objective 3: Increased Public/Private Cooperation 301
Land Use Benchmarks 301
LAND-USE
Land use policies and practices in Lake County have, to date, been primarily reactive, accommodating development on an individual basis. Conservancy districts protect lands that represent potential flood hazards, but a guide for all land uses is needed to prevent continued unnecessary land consumption. With the exception of unincorporated Calumet Township, the county enjoys a positive development atmosphere developers are anxious to exploit the active markets that exist locally. The combination of private interest and infrastructure systems at, or near, capacity present the opportunity for greater interaction between developers and the public sector. The result of this interaction should be subdivisions and commercial development that both allow for return on investment for the developers and will more adequately meet the transportation, natural environment, and stormwater management needs of the county residents and businesses.
More than any other factor, land use influences the quality of life of the communities of the county. The impact of land use patterns on community character occur through both its location within the context of the county and physical design at the site. The 1967 plan addressed the need to avoid strip development and land use patterns that were incompatible with existing infrastructure and community character. The industrial, commercial, and residential cluster developments recommended in the previous plan are also applicable in today's Lake County.
Lake County has traditionally faced a unique development atmosphere due to its relationship with Greater Chicago. There is no reason to believe that the rapid growth trends will slow. A number of zoning ordinances and provisions have been successfully applied with nationally in communities with situations similar to those in Lake County.
Any changes in local policies need to respect infrastructure capacities and the natural environment while providing for appropriate growth and development. In light of existing land use patterns and control methods for future changes, the key objectives of the programs for local land use control are....
• establishing land use patterns compatible with local natural features and infrastructure conditions;
• utilizing flexible, performance-based land-use control methods;
• encouraging increased public/private cooperation in the development process.
Objective One: Establish Sensitive Land Use Patterns
Process
A variety of factors were used to identify the four development environments which serve as target areas for development. The target areas are the result of a comparison of the needs of individual development types (industrial, residential, commercial, open space) with local features such as soils, slopes, and road congestion. The result of the process is a geographic definition of areas most suitable for future development.
Overlay Factors
Factors included in the land suitability overlay process include both existing natural features (such as floodplains or woodlots), as well as built features (such as roads and utilities). Also significant factors in the process were existing developments and the future open space needs described in the 1993 - 1997 Lake County Parks and Open Space Master Plan.
• Soils:
Local soil conditions have implications for development based on their general "build ability" and permeability. As most of unincorporated Lake County is reliant on septic systems, the ability of soils to support those systems is a key to development. Much of the soil in the county is poor in its ability to support development due to high water tables and the tendency to pond. The least appropriate soils are found in the Kankakee River outwash plain and along major streams.
• Slope:
The flat to gently rolling topography of Lake County prevents few hindrances to development. However, when combined with soils information, the areas most prone to drainage problems can be identified.
• Floodplains:
The current Lake County zoning ordinance establishes flood zones for county. Flooding results in significant property damage in the zone. The most significant local floodways exist in the Kankakee River basin and along the streams which are its tributaries.
• Wetlands:
Construction on wetlands is prohibited by law due to the potential for the destruction of important habitats and the disruption of natural stormwater runoff patterns and groundwater recharge. A majority of Lake County's wetland areas are found in the Kankakee watershed area.
• Prime Farmland:
A vast majority of unincorporated Lake County has been designated as prime farmland due to the same soil and slope conditions that often make it inappropriate for development. The value of setting aside this land is based on the value of the agricultural base to the local economy, environmental conditions, and the visual quality that is the foundation for local small town/rural community character.
• Vegetation:
The woodlots that remain in the county represent important wildlife habitats. The targeting of future land use needs to be sensitive to the vegetation linkages and movement patterns of animals as the potential exists for conflict with human activity. These remaining stands of vegetation also provide the opportunity for future recreation facilities and amenities for development.
• Transit Access:
Numerous transit routes and corridors serve the Lake County area, with the presence of these roads having different implications for different land uses. Commercial and industrial sites favor readily accessible sites while residential areas are best suited for areas with secondary routes that feed into the primary corridors.
• Transit Capacity:
Directly related to access is the available capacity of those routes. In many places in Lake County, stresses on existing roads are a serious hindrance to future development. St. John, Center, and Hanover Townships in particular suffer from regular traffic congestion.
• Utilities:
The restrictions imposed by utilities are also a matter of capacity. Water and electricity are readily available throughout the county, however, the capacity is limited by existing demand.
The Suitability Overlay Process
Existing Land Use Features
L.U.T.A. – Land-Use Target Areas
The suitability overlay process identifies geographic areas with attributes most appropriate for development. These Land-Use Target Areas serve to focus the future development of the county. The target areas represent the most appropriate locations sensitive to existing natural systems, road and infrastructure capacities, and existing development patterns. All areas not designated as target areas should be reserved for agriculture.
Note: Agriculture is a viable land use. Farm land should not be considered "undeveloped" land.
• Conservancy Areas:
Conservancy target areas are based on the current floodplain zones as described in the county ordinances and portrayed on the county map. Due to periodic flooding, these areas are reserved for agriculture, recreation and limited development as described by the Lake County zoning ordinance.
• Parks and Open Space:
These areas are similar to conservancy areas, and responsive to recommendations made in the
Parks and Open Space Master Plan.
• Residential:
The siting of residential areas is based on the presence of secondary access routes, comparatively minimal limitations on infrastructure and waste management systems, and the presence of nearby communities and sources of employment and consumer opportunity. The residential target areas provide for the continued subdivision of land around existing municipalities.
• Commercial:
Commercial areas were designated with regard to local environmental conditions such as soils, slope, and floodplains. However, more significant factors include the presence of complimentary residential areas or transit routes providing high visibility and accessibility.
• Industrial:
Industry moving into the area would most likely be light in nature, therefore, access to transit routes and compatible commercial areas are significant factors.
Land-Use Target Areas
Action Step I
Update the current zoning map to represent the geographic guidelines established by the target areas.
Action Step 2
Publish brochures detailing zoning map changes to landowners and developers discussing the merits of pro-active, performance-based zoning and an explanation of local changes.
The Dinwiddie Interchange - Site of Future Commercial Development
Northwest Lowell - Residential Target Area
Objective Two: Alternative Land Use Controls
Action Step
The following action step options represent increasingly intense and progressive land use and development management strategies. They provide options for pro-active measures which, in many cases, are not applied simultaneously. Each is appropriate for conditions in Lake County but differs from the others in the scope of control placed of new development.
Option 1
Expand the scope of residential, commercial and industrial planned unit developments and cluster developments as provided for in the current Lake County Zoning Ordinance. These zones could provide a basis for the establishment of design standards on sites in the target area, while minimizing curb cuts and limiting unnecessary land consumption.
Option 2
Establish hobby farm overlay districts in areas zoned for agriculture. These districts would be located around parks or nature preserves for access to trails and large natural areas providing communal space for hobby farm owners to ride horses, for example. Also, amend the Lake County Zoning Ordinance to prohibit residential subdivisions in areas zoned for agriculture unless the subdivisions are located in the hobby farm districts and meet the minimum size requirements for hobby farms. Subdividers wishing to have a residential subdivision in an area zoned agricultural would have two options:
1) locate in a hobby farm district, or
2) petition for a zone change to residential (R-1, R-2, etc.)
The purpose of the hobby farm district overlays and the limitations to residential subdivisions in areas zoned for agriculture is to manage growth in Lake County's agricultural areas, preserving agricultural land while still allowing options for residential development.
The Advantages of Land Preservation Districts
Option 3
Establish land preservation districts (LPD) as overlays to existing zoning. The land preservation is a performance-based alternative to standard residential zoning which can also be applied to industrial or commercial clusters. The primary purpose of the land preservation district is to encourage development while protecting a rural, small town character. Characteristics include....
• requires that 75 percent of each site be used as open space - eliminates reliance on borrowed open space (farmland, woodlots) adjacent to development;
• includes smaller lots (typically 10,000 to 6,000 sq. ft.) grouped in "neighborhoods" of 5 to 25 dwelling units around a common open space;
• allows for the linkage of open spaces into a county open space system;
• setbacks/buffers are required between neighborhoods, each other, roads, and cropland;
• typically requires on-site sewage treatment;
• implementation requires in the zoning text establishing the setbacks and open space requirements, and changes in the map designating the areas to be over laid by the LPD.
Option 4
Establish an adequate public facilities ordinance (APFO) to limit or restrict growth in areas with incompatible infrastructure, or infrastructure systems at capacity. The APFO is applied as an overlay zone to areas which are prone to congestion or inadequate stormwater management. The APFO does not ban development, but rather requires greater private sector input into the updating of infrastructure. For Lake County, the establishment of these overlay districts would minimize the congestion and stormwater damage that is characterizing the increased development
• implementation requires the addition of appropriate text detailing the district to the zoning ordinance, and alterations of the zoning map to include the designated overlay areas; and
• the process of insuring that developers satisfy the increased infrastructure needs of the new development becomes a part of the Plan Commission review process.
Option 5
Establish impact zones to require private contribution to needed infrastructure updates that result for development. While similar to an adequate public facilities ordinance, the impact zone requires that developers financially contribute to infrastructure updates rather than provide the services themselves. Like APFOs, impact fees can be applied to any type of development. Funds received are earmarked directly for the appropriate improvements either by the county itself or a subcontractor. The impact fees are an alternative to APFO's and are not applied together. The impact zones are applied as overlays of existing zoning classifications.
• implementation requires the changing of zoning ordinance text and the establishment of geographic districts on the zoning map; and
• the fees to be paid by the developer are established during review of the project by the plan commission based on a pre-established fee schedule for designated areas.
Option 6
Establish a point system for the approval of proposed development. The establishment of a point system allows the county to create a set of development and design standards that govern the approval process. Each proposed development is evaluated based on criteria such as compatibility with existing development, compatibility with existing infrastructure, impacted natural systems, or location in a land use target area. In a point system the governing entity establishes a minimum number of points that must be compiled for approval of the development. It is recommended that the minimum points be that number equal to the value of points available minus the points to be received from locating in a target area. This would directly encourage development of the specified districts without making growth outside of those areas impossible. If a development outside of a zone is able to reach the minimum point total it has essentially recreated the conditions used to establish the target areas.
• implementation requires the addition of point system provisions to the subdivision ordinance test, the establishment of criteria, and an increased role of the Plan Commission in its evaluation of developments prior to approval; and
• as growth continues in Lake County, the ordinance could be changed to the place ceilings on the maximum number of developments rather than approving all projects achieving the minimum requirements.
Sample of Points System Criteria
· adjacent use | · gross density |
· open space ratio | · buffering |
· massing of buildings | · building heights |
· setbacks | · on-site circulation |
· road quality | · pedestrian linkages/systems |
· transit access | · intensity of surrounding uses |
· distance to contiguous urban development | |
· recreational opportunity | · consumer opportunity |
· historic preservation | · fire station proximity |
· fire-fighting water source | · school proximity |
· parking | · low-income housing |
· traffic generation | · noise pollution |
· glare | · odors |
· air pollution | · surface water pollution |
· groundwater runoff | · erosion |
· wildlife habitat | · vegetation |
· wetland loss | · prime cropland |
· soil suitability | · flood hazard |
· landslide hazard | · energy conservation |
· building materials | · permanent foundations |
Objective Three: Increased Public/Private Cooperation
Action Step 1
Create a "one-stop development shop" as a part of the central information center described in the organization and communication section. The facility will provide potential developers and land owners with a guide to Land-Use Target Areas and zoning regulations. The program could originate as a series of articles in local newspapers and also be made available as informational packets available through the branches of the Lake County Public Library.
Action Step 2
Assign the role of Hearing Officer to Planning Department staff to evaluate and resolve simple planning and zoning issues. This would reduce the time required for development to proceed, and would relieve some of the burden on the Plan Commission. The staff would also serve to coordinate the application of zoning overlay zones and infrastructure policies.
Land-Use Benchmarks
The Lake County zoning map has been changed to reflect the Land-Use Target Areas. Pamphlets and brochures detailing zoning changes have been printed and placed in an easily accessible location (the Lake County Public Library) for the benefit of developers, property owners, and residents. The appropriate overlay methodland preservation districts, adequate public facilities ordinances, or impact zoneshas been selected with the appropriate changes being made to the zoning map and text. The new Town of Winfield has established its own set of zoning designations and other land-use management techniques. Criteria has been established for a point system for approval of development.(Prior Code, Comprehensive Plan)