VILLAGE OF SUAMICO SUNSET BEACH LANE PARK MASTER PLAN€¦ · Sunset Beach Master Park Plan - 2011...

VILLAGE OF SUAMICO SUNSET BEACH LANE PARK MASTER PLAN

Village of Suamico, WI Community Development Department

August 1, 2011

Sunset Beach Master Park Plan - 2011 Page 2

ACKNOWLEDGEMENTS

The Village of Suamico would like to thank residents, committee members, and board members for their time and effort in shaping this document. Suamico Parks, Recreation, Forestry, and Trails Committee Members (2009-2011) Dick Sachs Steven Bloom Roy Krouse Jerry Vandersteen Ruth Lund Phil Hart Debbie Hoffman Jim Servais Tammy O’Donnell Mary Steffen

Suamico Village Board (2011) Patricia Gaura-Jelen– President Matt Athey Paul Garvey Mary Steffen Bernard Schenkelberg Tom Lund Sky VanRossum

Mrs. Artel’s 2009 Third Grade Class at Bay Harbor Elementary for their hard work on a proposal for the park.



TABLE OF CONTENTS

Chapter 1 – Introduction……………………………………………………………Page 5 Chapter 2 – Planning and Public Input…………………………………………..Page 7 Chapter 3 – General Site Characteristics………………………………………..Page 9 Chapter 4 – Phased Development Plan………………………………………….Page 11 Chapter 5 – Implementation and Integration……………………………………Page 13

LIST OF TABLES AND FIGURES

Figure 3.1 – Bird’s Eye View of Park Property Looking East………………..Page 9 Figure 4.1 – Proposed Park Layout Sunset Beach Lane……………………..Page 12 Table 5.1 – Park Amenity Unit Price and Cost………………………………….Page 13 Figure 5.1 – Integration Plan Sunset Beach Area………………………..……Page 16


CHAPTER 1 – Introduction Suamico, Wisconsin is located in northern Brown County approximately 10-15 minutes from downtown Green Bay. The Village’s proximity to Green Bay resulted in a steady growth in population and housing from 1970 to the present day. It is expected that this growth will continue well into the future. At a glance Suamico’s geography is a collection of country roads, farmland, and woodlands dotted with single family residential subdivisions and the early stages of commercial development along the main transportation corridors. Water features in Suamico include the Bay of Green Bay along the Village’s east edge, the Suamico River, and over 5,000 acres of wetlands. Other outdoor recreation amenities include:

• Barkhausen Waterfowl Preserve (County owned) • Reforestation Camp and N.E.W. Zoo (County owned) • Sensiba Wildlife Preserve (State owned) • Idlewild Community Park (Village owned) • Calavera Community Park (Village owned)

However, for all the natural resources and acres of public parkland available, the Village still lacks in two critical areas of public outdoor recreation: access to the water and small neighborhood parks. Development of the park on Sunset Beach Lane can address both of these issues. Property Background In 1934 the Plat of Sunset Beach was created and approved by the then Town of Suamico. As part of that plat a 60 foot wide bay access was dedicated to the public that connected Sunset Beach Lane and the Bay of Green Bay. In 2006 the Village used funding from both the Wisconsin Coastal Management Program and the Knowles Nelson Stewardship Program to purchase two additional properties to the south of the 60 foot access. Approximately 80% of the cost was provided through grant funding. A second award was received from the Stewardship Program in 2010. This 50% match grant assisted in the purchase of the adjacent parcel to the south. Since its purchase by the Village the property remains vacant, but it has seen use as a boat launch, snowmobile access to the bay, ice fishing access to the bay, a location for kayaking lessons, bird watching, and picnicking. In 2009 the Suamico Park, Recreation, Forestry and Trails Committee began the process of preparing a master plan document for the park property on Sunset Beach Lane. Support for Park Development Parks and open space have continuously been proven to enhance communities in four areas: economic development, safety, personal health, and environmental health.


According to the American Planning Association’s Briefing Paper How cities use parks for Economic Development (2002) parks affect a community’s economy in five key areas: An increase in property values, increase in tax revenues, attraction and retention of affluent retirees, attraction of knowledge workers, and attraction of homebuyers (pg.1-4). Parks also contribute to neighborhood safety by providing a space for neighbors to get to know one another and build strong social ties (American Planning Association, 2003). In addition well maintained park sites will give the appearance of use which can inhibit criminal activity. Personal health can benefit from park space by providing a location for physical activity to take place. Although the park on Sunset Beach Lane is small it does provide access to the Sensiba trail system and the bay. The fact the Village has frequently used this site as a launch point for kayak lessons serves as an example of the site’s potential. In addition to physical health park space can also contribute to mental health by relieving mental fatigue and reducing aggression. Environmental health is also benefited by park space and green space by filtering storm water, providing a place for biological diversity, and preservation of vegetation that can have a positive impact on air and water quality (Crompton, 2001). Conclusion Studies from around the nation have shown that park and open space can have a positive impact on a community’s health, economy, and safety. The previous leaders of Suamico recognized this fact and made sound investments in parkland and established guidelines to preserve open space and the community’s character. However for all the park and open space in Suamico there is little public access to one of the Village’s most important features, the Bay of Green Bay. The development of this park space on Sunset Beach Lane is a step in the right direction to correct this issue. This document will help guide the creation of a truly great public space for residents and visitors alike. References American Planning Association. (2002). How cities use parks for create safer

neighborhoods. City Parks Forum Briefing Papers, 4, 1-4. American Planning Association. (2002). How cities use parks for economic

development. City Parks Forum Briefing Papers, 3, 1-4. Crompton, John L. (2001). Parks and economic development. Planning Advisory

Service Report Number 502.


CHAPTER 2 - Planning and Public Input

Village officials, both elected and appointed, strive to include as much public participation and input as possible on all projects. This goal is especially true for neighborhood park projects that will see the most use by the nearby property owners. In the case of the park property at Sunset Beach Lane the process of gathering public input began as early as possible in order to give consideration to neighborhood concerns. A summary of the public input and planning process follows. Public Input Sessions Staff and members of the Park, Recreation, Forestry, and Trails Committee held two public input sessions at the park property on Sunset Beach Lane. These took place on July 13 and 16, 2009 from 6:00 p.m. to 7:00 p.m. Staff mailed letters inviting residents to attend the sessions in order to voice concerns and provide input for park features. Between the two sessions approximately 20 residents attended. The attendees’ concerns stemmed from two main areas: parking and crime. The parking concerns stem from past use of the site as bay access for boats and snowmobiles. Some residents stated that vehicles with trailers will at times park on both sides of the road resulting in a narrow driving lane. This is most prevalent during ice fishing season. At that time the property was purchased Village staff was aware that parking would be an issue. The recommended park layout in chapter four combined with the prevailing passive use of the park should help alleviate parking issues. Naturally, as the park grows in size and scope so too shall the available parking. An increase in crime is a common neighborhood concern accompanying park development. In the case of this park property according to long-time residents in the past the 60 foot access area was the site of parties. However, there are a few changes since that time that help curb this activity. First is the fact that today Suamico has around-the-clock police coverage consisting of three full time officers and two support shift officers. Secondly is the physical definition of the site. Currently there is little evidence that this space is used as a park. Developing and maintaining the space will show that it is used and cared for and will help to deter unwanted activities. Proximity to nearby homes will also contribute to the sense that the area is watched over. Village Newsletter In the summer of 2009 Village staff asked for comments from the public in an article published in the quarterly newsletter. The newsletter is distributed to every household within the Village. Several comments were received as a result of the article.


Bay Harbor Elementary Class Project The park property on Sunset Beach was also the subject of a 3rd grade class project at Bay Harbor Elementary. In early 2009 Village Staff spoke to the class about the property, provided the students with a map, cutouts of common park amenities, a cost for each park amenity, and a budget. The students were split into groups and each group prepared their own plan. The groups then combined their plans after discussing the options and polling the entire school. A final plan was agreed upon and the class presented their decision to the Village Board in May of 2009. The project also included a clean-up day at the park property. Park, Recreation, Forestry, and Trails Committee Meetings After gathering input from the neighbors the Park, Recreation, Forestry, and Trails Committee began discussing the park plan document at their regularly scheduled meetings in September of 2009. Over the course of the next three meetings the Committee determined the overall park use, a list of park amenities, and a phased development plan. These meetings were open to the public and allowed for public input; however no one was in attendance at any of the meetings where this item was discussed. Approval Process Once the final draft of the Master Park Plan for the park property at Sunset Beach Lane was completed it was recommended for approval by the Park, Recreation, Forestry, and Trails Committee on July 12th of 2011. After a public informational meeting, and hearing comments from the residents of the community, the Village Board officially adopted the plan document on August 1st of 2011 by way of Resolution 11014.


Chapter 3 – General Site Characteristics

Site Topography The current park property (defined as the two parcels of land plus the public access) is small in size. Added up, the property is 27,837 square feet (0.64 acres) in area and 210 feet wide at the right-of-way. The depth of the property varies from between 110 to 147 feet deep depending on location along the shore. The area and depth of the property will vary with the level of the water in the bay, which for a number of years was low but recently experienced a bit of resurgence. The bottom of the bay offshore from the park property is primarily soft sand. Some spots closer to shore contain very soft, black organic sand just below the surface that according to a few park users makes it difficult to establish a footing when launching small water craft. Visual inspection of the site shows that much of the site is turf lawn and is between two and four feet higher than the access driveway. Protecting this area from wave action erosion is a sloped bank of large stone rip rap. Due to the small size of the site there is very limited space for parking. A formal parking lot is not present at this time. Park users tend to park along the south edge of the access driveway and on both sides of Sunset Beach Lane. Public sewer is available to the park property by way of a sewer lateral that in the past connected to the home once located there. The site also contains a private well that could be utilized to provide water to park facilities in the future. The condition and functionality of the well is not known at this time.

Figure 3.1 – Bird’s Eye View of Park Property Looking East Source:http://www.bing.com/maps/explore/?org=aj#5003/o=&a=&s=w/5872/style=be&lat=rf580c&lon=7nz7w0&alt=141.407089&z=21&h=81.808673&pid=5874 (reds lines added to show approximate boundary)


Nearby Recreation Facilities

The Sunset Beach Lane park property is unique because it can be used as a neighborhood park, allows for public access to the bay, and can be integrated with other nearby recreation facilities that include: Sensiba Wildlife Area – This 570 acre property is located just across from the park property. It is owned and managed by the Wisconsin Department of Natural Resources (WDNR), and is primarily made up of wetland and bottomland hardwoods. The wildlife area has a proposed network of trails, an entrance to which is located approximately 650 feet north of the property. Sensiba provides the perfect setting for hiking, bird watching, canoeing, cross country skiing, fishing, and limited hunting (check with Wisconsin Department of Natural Resources for hunting regulations). Brown County Boat Launch – The four acre site is located on Sunset Beach Road, approximately 2,000 feet from the Sunset Beach Lane park property. It is owned and maintained by Brown County and provides four launch lanes, a seasonal restroom facility, on shore fishing, and 42 parking stalls for vehicles with trailers and 30 vehicles without trailers. On site parking is an issue for this site, especially on the weekends.

Nearby Natural Resources

The location of the park is also near to two of Suamico’s most important natural resources: the Suamico River and the Bay of Green Bay.

Suamico River – The 16 mile tributary of the bay is shallow, fast moving, and has a gravel bottom in the west and becomes a deep, slow moving river with a sand and silt bottom in the east. The river provides for those interested in fishing, canoeing, and allows access to the bay for larger watercraft.

Bay of Green Bay – Once the source of a booming commercial fishing industry based in Suamico, the bay of Green Bay’s primary use today is recreational. Pleasure boaters and recreational fishermen can be seen on the bay from sun up to sun down. Green Bay is also a popular location for sport fishing as evident by the increasing number of fishing tournaments that take place here. Suamico possesses approximately nine miles of shoreline along the bay yet only 880 feet are accessible to the general public. However the Village’s connection to the bay is not just along its shoreline. Many of Suamico’s small streams and wetlands serve as spawning grounds for several species of fish from the bay.

Recommended Park Use

The park property’s small size and limited parking dictate that the primary use should be that of a neighborhood park. However, the aspect of public access to the bay and the property’s proximity to other recreation and natural amenities does provide for other “use” opportunities. Using the above information, the Park, Recreation, Forestry, and Trails Committee recommended that the park’s primary use be that of a relatively passive neighborhood park. However it should also see development as a trailhead for Sensiba and an access point for small watercraft.


Chapter 4 – Phased Development Plan

In addition to multiple uses another unique aspect of this park property is its ability to expand over time. Because residential development on Sunset Beach Lane is in a long narrow stretch adjacent only to the bay there is the potential to expand the park as properties are placed on the real estate market. In fact the Village took a step in this direction by applying for a grant to help fund the purchase of properties immediately adjacent to the park. Funding the purchase of additional properties will always be an area of concern, but with available grant funding from a number of different sources the potential exists to purchase additional properties without affecting the tax levy. Park size will broaden the overall park use which will in turn impact the type and amount of amenities the property can support. Because the expansion of the park is dependent upon an uncontrollable factor (the sale of private property) it was decided to create a phased development plan based on the size of the park rather than the passage of time. The following lists detail the phased development plan. Sizes are approximate. Figure 4.1 proposes a layout based on the 0.48 – 1.0 acre phase of development with the play structure area shown as a place holder. Between 0.48 – 1.0 Acre Parking lot Open air shade structure Bike Racks Two to three picnic tables Drinking fountain Pathway Landscaping Portable restrooms Area map Two benches Small playground set Reinforcement of launch point Lighting Property line buffers Canoe rest Garbage and recycling cans Park sign

Between 1.0 – 2.5 Acres Expand parking lot Open air pavilion Fishing dock Additional benches Additional picnic tables Additional lighting and landscaping Additional playground equipment Property line buffers Rain garden

2.5 Acres and Greater Expanded parking lot Additional benches Additional picnic tables Additional lighting and landscaping Swimming area Changing building Stairway to water Walkway along water Playground equipment Grills Property line buffers (if needed)

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Chapter 5 – Implementation and Integration

In order to implement the recommendations discussed in this document a few more details need to be outlined. This chapter will look at the cost of park development, alternative sources of funding to offset development costs, and finally will examine the potential to link this park with other nearby natural and recreational resources. It should be noted that this plan is advisory only; the Village Board will make the final decision on amenities and site plan details. Development Costs The development costs listed in Table 5.1 are estimates and represent only those amenities listed in the first size category for the park (0.48 – 1 acre). Table 5.1 Park Amenity Unit Price and Cost

Park Amenity Unit Price Quantity Total

Open air shade structure $10,000 1 $10,000 Bike Racks $600 2 $1,200 Picnic tables $1,000 3 $3,000 Drinking fountain $2,400 1 $2,400 Concrete pathway $20 113 LF $2,260 Landscaping (post-construction no trees)

$5,000 1 $5,000

Trees (non buffer) $150 4 $600 Portable restrooms (rental) $500 1 $500 / year Message Center & Map $1,000 1 $1,000 Benches $500 5 $2,500 Small playground set $15,000 1 $15,000 Reinforce launch point $5,000 1 $5,000 Lighting $3,500 2 $7,000 Property line buffer (fence) $20 126 FT $2,520 Property line buffer (trees) $100 20 $2,000 Canoe rest $300 1 $300 Garbage and recycling cans $600 1 $600 Park sign $2,000 1 $2,000 Parking lot $1.60 1,890 SQ FT $3,024 Total $65,904


Funding Sources Funding sources for the development of the park property on Sunset Beach Lane can come from three potential sources: taxes, grants, and donations. Due to the fact that the full build out of this park will be realized over a long period of time costs for development can be included in the Village Capital Improvement Program (CIP). The CIP was established to schedule projects and purchases over a five year period in order to prevent high spending in one particular year. Utilizing this tool would help fund the development of the park while maintaining a stable tax rate. While grants are available from a number of different sources they often require a percentage of the award be matched by the applicant. Heavy competition for limited funds makes relying on grants as the sole means of funding difficult. Two of the more common grants available for park development include the Wisconsin Department of Natural Resources Knowles-Nelson Stewardship fund and the Wisconsin Department of Administration Coastal Management Grant. As public funds become scarce donations from non-profit organizations and public-private partnerships have become a more prominent part of the funding landscape. These funds can be a good source of match funds for grants or can be put towards the purchase of a specific amenity. In fact, a donation of $10,000 was given to the Village to put towards the purchase and installation of an open air shelter. The Village must be aware that donations can come with conditions such as use clauses or advertisements. Integration with Nearby Features The fact that this park property’s potential goes beyond that of a typical neighborhood park is mentioned several times throughout this document. Considering the unique attributes along with the property’s proximity to other recreational features warrants some thought regarding connection with those nearby features. The listed features are discussed in Chapter Three of this plan document. A trail would be the best option to connect all of the sites in this area. It could be a stand alone trail or could connect to parts of the proposed Sensiba trail system. These trails provide a connection between the boat launch and the Sensiba parking lot (that serves as overflow parking for the boat launch) and the boat launch to Sunset Beach Lane Park property. However it should be noted that these trails are for pedestrian traffic only. The DNR will not allow bikes on the trails. Providing a connecting trail system will allow visitors the ability to visit all of these areas without having to drive and park each one. Figure 5.1 shows nearby recreation facilities and potential connector trail routes for this area. The park property on Sunset Beach Lane was designated by the adopted Village Trail Plan as a water trail launch site. The access point at this property serves as an excellent launch point for small personal watercraft. It also provides easy access to the


Suamico River and scenic locations north and south along the bay’s shore. A few of the recommended amenities were included specifically to improve the site’s capability to serve as a launch site or stopping point for those travelling by canoe or kayak. Due to the park’s suitability to accommodate small personal watercraft Village staff has asked that it be included as an access point in the Wisconsin segment of the Lake Michigan Water Trail. This National Park Service project will detail routes and access points for canoes and kayaks around the entire Lake Michigan shore line. This site would help fill one of the access gaps identified in that plan. Connecting all the sites in the area may also help alleviate the parking issue mentioned in Chapter 2. Residents of the area mentioned that snowmobile operators will at times park on both sides of Sunset Beach Lane and use the 60 foot wide access point to access the bay. This scenario often creates a narrow driving lane for residents and emergency vehicles. A “no parking” designation on one or both sides of the road is not acceptable because it would eliminate parking for family and friends that is needed due to the small lot size present in this area. One option would involve Suamico, Brown County, and the DNR whereby trucks and trailers could be parked in the boat launch parking lot. Snowmobilers could then ride a trail through Sensiba or use the north and west right-of-way of Sunset Beach Road and Sunset Beach Lane respectively to reach the access point at the park. An agreement between the three governmental bodies would need to include:

• Brown County to allow parking at the boat launch in winter • Suamico to plow the boat launch parking lot in winter • The DNR to allow snowmobiles to travel one section of trail

or Suamico to allow snowmobiles to ride the right-of-way on Sunset Beach Road and Sunset Beach Lane.

Site Compliance with American Disabilities Act It is the Village’s intention to create a park site that can be used by every segment of the population. In order to do so design and site construction will include technical requirements as detailed in the American Disabilities Act Accessibility Guidelines for Buildings and Facilities (ADAAG). Included in this plan is an excerpt from the ADAAG that is relevant to this park site in the areas of route accessibility and floor surfaces. For more information regarding the ADAAG please visit the following website: http://www.access-board.gov/adaag/html/adaag.htm#purpose.

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Excerpt from the American Disabilities Act Accessibility for Buildings and Facilities 4.3 Accessible Route.

4.3.1* General. All walks, halls, corridors, aisles, skywalks, tunnels, and other spaces that are part of an

accessible route shall comply with 4.3. Appendix Note

4.3.2 Location.

(1) At least one accessible route within the boundary of the site shall be provided from public

transportation stops, accessible parking, and accessible passenger loading zones, and public streets or

sidewalks to the accessible building entrance they serve. The accessible route shall, to the maximum

extent feasible, coincide with the route for the general public.

(2) At least one accessible route shall connect accessible buildings, facilities, elements, and spaces that

are on the same site.

(3) At least one accessible route shall connect accessible building or facility entrances with all accessible

spaces and elements and with all accessible dwelling units within the building or facility.

(4) An accessible route shall connect at least one accessible entrance of each accessible dwelling unit

with those exterior and interior spaces and facilities that serve the accessible dwelling unit.

4.3.3 Width. The minimum clear width of an accessible route shall be 36 in (915 mm) except at doors (see

4.13.5 and 4.13.6). If a person in a wheelchair must make a turn around an obstruction, the minimum

clear width of the accessible route shall be as shown in Fig. 7(a) and (b).

4.3.4 Passing Space. If an accessible route has less than 60 in (1525 mm) clear width, then passing

spaces at least 60 in by 60 in (1525 mm by 1525 mm) shall be located at reasonable intervals not to

exceed 200 ft (61 m). A T-intersection of two corridors or walks is an acceptable passing place.

4.3.5 Head Room. Accessible routes shall comply with 4.4.2.

4.3.6 Surface Textures. The surface of an accessible route shall comply with 4.5.

4.3.7 Slope. An accessible route with a running slope greater than 1:20 is a ramp and shall comply with

4.8. Nowhere shall the cross slope of an accessible route exceed 1:50.

4.3.8 Changes in Levels. Changes in levels along an accessible route shall comply with 4.5.2. If an

accessible route has changes in level greater than 1/2 in (13 mm), then a curb ramp, ramp, elevator, or

platform lift (as permitted in 4.1.3 and 4.1.6) shall be provided that complies with 4.7, 4.8, 4.10, or 4.11,

respectively. An accessible route does not include stairs, steps, or escalators. See definition of "egress,

means of" in 3.5.

4.3.9 Doors. Doors along an accessible route shall comply with 4.13.

4.3.10* Egress. Accessible routes serving any accessible space or element shall also serve as a means

of egress for emergencies or connect to an accessible area of rescue assistance. Appendix Note

4.5 Ground and Floor Surfaces.


4.5.1* General. Ground and floor surfaces along accessible routes and in accessible rooms and spaces

including floors, walks, ramps, stairs, and curb ramps, shall be stable, firm, slip-resistant, and shall

comply with 4.5. Appendix Note

4.5.2 Changes in Level. Changes in level up to 1/4 in (6 mm) may be vertical and without edge treatment

(see Fig. 7(c) ). Changes in level between 1/4 in and 1/2 in (6 mm and 13 mm) shall be beveled with a

slope no greater than 1:2 (see Fig. 7(d) ). Changes in level greater than 1/2 in (13 mm) shall be

accomplished by means of a ramp that complies with 4.7 or 4.8.

A4.5.1 General. People who have difficulty walking or maintaining balance or who use crutches, canes, or

walkers, and those with restricted gaits are particularly sensitive to slipping and tripping hazards. For such

people, a stable and regular surface is necessary for safe walking, particularly on stairs. Wheelchairs can

be propelled most easily on surfaces that are hard, stable, and regular. Soft loose surfaces such as shag

carpet, loose sand or gravel, wet clay, and irregular surfaces such as cobblestones can significantly

impede wheelchair movement.

Slip resistance is based on the frictional force necessary to keep a shoe heel or crutch tip from slipping on

a walking surface under conditions likely to be found on the surface. While the dynamic coefficient of

friction during walking varies in a complex and non-uniform way, the static coefficient of friction, which can

be measured in several ways, provides a close approximation of the slip resistance of a surface. Contrary

to popular belief, some slippage is necessary to walking, especially for persons with restricted gaits; a

truly "non-slip" surface could not be negotiated.

The Occupational Safety and Health Administration recommends that walking surfaces have a static

coefficient of friction of 0.5. A research project sponsored by the Architectural and Transportation Barriers

Compliance Board (Access Board) conducted tests with persons with disabilities and concluded that a

higher coefficient of friction was needed by such persons. A static coefficient of friction of 0.6 is

recommended for accessible routes and 0.8 for ramps.

It is recognized that the coefficient of friction varies considerably due to the presence of contaminants,

water, floor finishes, and other factors not under the control of the designer or builder and not subject to

design and construction guidelines and that compliance would be difficult to measure on the building site.

Nevertheless, many common building materials suitable for flooring are now labeled with information on

the static coefficient of friction. While it may not be possible to compare one product directly with another,

or to guarantee a constant measure, builders and designers are encouraged to specify materials with

appropriate values. As more products include information on slip resistance, improved uniformity in

measurement and specification is likely. The Access Board's advisory guidelines on Slip Resistant

Surfaces provides additional information on this subject.

Cross slopes on walks and ground or floor surfaces can cause considerable difficulty in propelling a

wheelchair in a straight line.

Excerpt taken from the United States Access Board website: http://www.access-board.gov/adaag/html/adaag.htm#purpose.

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