Chapter Ten

Plan Implementation
This Chapter of the Plan discusses a variety of tools and techniques that Township Officials, community
leaders, citizens and Township staff can use to implement this Plan. These tools and techniques are
intended to enable the Township to attain the goals and objectives stated in Chapter 3, and to attain the
general pattern of land use described in Chapter 9.
All of the tools and techniques discussed in this Chapter are capable of being implemented under current
enabling legislation. All require some level of investment of ongoing time and effort in order to make this Plan
attain its intended purpose over the short and long-term. Some will require a financial commitment on the
part of the Township.

I-

Public Policy and Administrative Actions

Continuous Planning

Planning is a continuous process that does not end with the completion of the Comprehensive Plan.
Conditions in the Township are subject to constant change. Planning is an on-going process of identifying
and responding to that change. In order to sustain the planning process and respond to change, the Plan
should be reviewed annually and updated at least every five years. This will assure that the Plan is always
current and responsive to conditions in the community.

Public Investment Strategies

Growth in the less developed portions of the Township is the result, in part, of less expensive land and lower
development costs, and is supported by public investment in roads, sewers, water lines, parks and other
public facilities. Continued growth means that public agencies, including the Township, must invest public
funds in the construction of new infrastructure while existing infrastructure is under-used. The Township must
remove the incentive to develop in rural areas by changing public investment policy so that public funds are
focused on maintenance, repair and expansion of existing systems within the urban growth areas.

Cooperation Between Units of Government

Any change in public investment policy will have the desired impact only if the Township is able to achieve
cooperation from other units of government. For example, road improvements affect the direction and rate of
growth, but decisions regarding Township roads are made by the Ottawa County Road Commission, the
Michigan Department of Transportation and the Macatawa Area Coordinating Council (MACC). These other
agencies must be aware of the Townships land use planning objectives. Ideally, the Township should
formalize these relationships with adopted memoranda of understanding or inter-local agreements.

Consistency Within Township Government

Within Township government, it, all departments, commissions and other decision-making bodies must be
made aware of the Comprehensive Plan and its goals, objectives and recommendations. This awareness
must extend to an awareness of the effect day-to-day decisions can have on the Plan.
A review panel should be established to evaluate decisions that would extend utility services beyond current
limits. Typical questions this panel might be asked to act on include:
Should new utilities be sized to serve future development within a new service area?
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Should the Township promote any road improvements when recommendations are solicited for the
MACC Area Transportation Improvement Program?
What initiatives should be taken by each department to encourage continued investments in and
improvement of the quality of life in existing neighborhoods, particularly the older neighborhoods in
need of revitalization?

Sub-Area Plans and Additional Studies

In the course of preparing the Comprehensive Plan, the Planning Commission identified several topics of
critical importance that will require additional study. Several future study areas have been identified, including
the 16th Street Corridor from Quarterline Road to I-196, Butternut Drive between Riley Street and 136th
Avenue, River Avenue between 136th Avenue and Lake Macatawa and the neighborhoods in Section 28 and
portions of Section 21, which are in transition, primarily north of 8th Street. The Planning Commission also
identified the need to more thoroughly document the Townships natural resources and features as a prelude
to developing more detailed urban design guidelines.

Development Impact Analysis

Impact analysis is a tool that is used to describe the probable outcome of proposed land development
projects. Impact analysis identifies, quantifies and evaluates the environmental, economic, social, physical
and other impacts likely to result from a proposed development project. It also identifies measures that can
be taken to alleviate the impacts. For example, a traffic impact analysis would typically identify new
signalization, changes in road geometrics and other measures that might be necessary to accommodate the
traffic generated by a proposed development.
Impact analysis is most effective if the Township establishes explicit guidelines and then participates with the
developer in completing the impact analysis. The guidelines should identify appropriate sources of
information, formulae to be used in calculating impact and reasonable assumptions to be used in the analysis.
The Township has begun to assist by creating and maintaining databases deemed necessary to complete the
impact analysis. Efforts will continue to make this information more easily obtained by developers and the
public.
The benefit of impact analysis is not just in identifying mitigation measures that would profit from developer
participation. Impact analysis also benefits the Township by identifying future public service capacity
problems, by identifying the types of development or features that generate the least impact, and by providing
information to the Township that can be used to study and evaluate development over time.
Before making impact analysis a requirement, the Township must first identify the types of impacts it wishes
to evaluate, and it must establish appropriate guidelines for analyzing each impact. The Township must also
determine when an impact analysis is warranted. The need for an impact analysis might be based on the size
of the development (proposed number of dwelling units, floor area of non-residential uses), its location (in or
near an environmentally sensitive area, on a high-traveled road), or the type of development. One approach
might be to conceptually define a development of township-wide impact for which development impact
analysis would be required.

Fiscal Impact Analysis

Fiscal impact analysis involves the projection of direct, current, public costs and revenues associated with a
proposed development. It describes and quantifies the public costs (police, fire, public works, transportation
and educational facilities) that come about because of development, as well as the revenues generated from
property taxes, user charges, intergovernmental transfers and other fees.
As indicated above, fiscal impact analysis is most effective if the Township establishes explicit guidelines, and
then participates with the developer in completing the impact analysis. The guidelines should identify the
appropriate method (average-costing, marginal-costing, or econometric), sources of base data, and
appropriate demographic multipliers.
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Fiscal impact analysis is one of several other types of analyses that the Township can use during the process
of reviewing a proposed development proposal. Consequently, the results of a fiscal impact analysis should
be just one part of the development review process, and should not be the sole basis for approval or
disapproval of a particular land use.

Sustainable Growth

The concept of sustainable growth is fundamental to any comprehensive plan. The concept of sustainability
implies that the use of energy and materials in the Township should be more in balance with what the region
can supply continuously through natural processes. Toward this end, the Plan recommends a future land use
pattern that would control scattered development into rural areas, and encourage development within existing
public service areas. Only when vacant lands having access to services become largely developed are new
lands opened via utility service extensions.

Establishing Priorities

The Comprehensive Plan contains a multitude of recommendations. There is insufficient staff or volunteer
support to implement all of the recommendations in a carefully planned, deliberate manner. Consequently, a
process for establishing priorities for implementation must be established as soon as the Comprehensive Plan
is adopted. Participants in the process should include Township staff, the Planning Commission, and the
Township Board and representatives of various interest groups from the community at large.

Code Enforcement

Housing conditions are an issue in certain neighborhoods. Deterioration is clearly related to the age of the
housing, but there is also some evidence that it is an issue in rental housing.
A housing stabilization strategy may be needed for the Township. The strategy might include incentives such
as low cost rehabilitation financing through the Michigan State Housing Development Authority (MSHDA), the
Community Development Block Grant program, or other sources. The strategy might also call for the
Township to take a more decisive role in code enforcement. One approach might be to target a certain
neighborhood in which all of the houses will be inspected and required to be brought up to code.
Holland Charter Township could also consider a landlord-licensing ordinance. Such an ordinance would
require an annual fee that would be used to defray the expense of an annual inspection. Such an ordinance
could be an effective tool to discourage conversion of owner-occupied housing into rental units, encourage
property maintenance and protect property values.

Development Agreement

Although there is no explicit legislative authority for such agreements, many Michigan communities have used
development agreements to achieve mutual understanding with developers as to the conditions under which
development can occur (not unlike the detailed PUD report now in use). Development agreements are often
negotiated as part of an approval process allowing the community and developer to address complex issues
that cannot be adequately addressed on a typical site plan. Development agreements might prove useful to
achieve desired development in the northward expansion of the Townships commercial core in conjunction
with utility extensions beyond the current service limits.

II -

Information and Education

The success of any comprehensive plan depends largely on efforts to inform and educate citizens about the
plan and the need for the development of a variety of regulatory measures required to assure its
implementation. A successful implementation effort will require the support and active participation of
residents, elected and appointed Township officials, property and business owners, and various interest
groups. This can best be accomplished by developing and conducting a public education program.

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Similar educational programs are recommended as an integral element of other implementation

recommendations. Educational programs should generally precede establishment of new zoning and other
land development regulations, standards and guidelines.

III -

Public Facility Improvements

Capital Improvements Program

Capital Improvements Programming (CIP) influences land development decisions. By properly coordinating
utility extensions and other capital improvements with its planning and growth management program, the
Township controls the direction and pace of development. Capital programming should be viewed as more
than just a ministerial act. Using the Comprehensive Plan to delineate the location and type of development
desired, and the CIP to schedule the provision of services, the Township informs developers when
development of a particular parcel will be encouraged and the type of development allowed. The capital
improvements planning process ensures that capital expenditures are programmed consistent with the urban
growth area discussed above. To this end, the Planning Commission should be more closely involved with
the CIP process.

Concurrency

Traditional land use regulations specify the permitted location and type of development. Concurrency
requirements specify when development will occur. Based on the concept of concurrency, development
would be permitted only when facilities and services are available to support that development. Concurrency
matches the development of land to the investments in public facilities, services and infrastructure to ensure
that new development occurs only when such facilities, services and infrastructure become available.
Adoption of an adequate public facilities ordinance will probably be required to enforce concurrency
requirements. Such an ordinance establishes a desired level of service for the facilities and services to be
included in the system. The existing level of service, expressed as a unit of capacity per unit of demand, is
used to calculate the amount of total capacity for a given system. If a surplus exists, then the demand to be
generated by a proposed development is compared to the available capacity to determine whether the
development can be provided service without lowering the level of service elsewhere in the Township.

IV -

Growth Management and Administration

As rapidly as Holland Charter Township has and will continue to change, staffing for building code
administration, zoning, utility administration, management and ordinance enforcement has changed little. For
growth management, planning activities, and infrastructure engineering, the Township has relied primarily on
consultants although in 2001 they hired a professional planner full time.
As Holland Charter Township matures, the scope of planning and utilities management increases. Demands
on current staff may be best addressed by providing technical planning and engineering staff.
The Township Planning Commission and Board of Trustees should continue to carefully study staffing issues
and reach decisions on the need for these new staff positions.

V-

Land Acquisition

Land acquisition is an important supplement to land use regulations as a means of managing growth and
protecting natural resources. Land acquisition can be used to control the use of a specific parcel, or to
influence the general growth of the Township. Local land acquisition programs are generally funded either by
local property taxes, such as a dedicated millage or general fund revenues, or by grant programs. For
example, the Township has used the Michigan Department of Natural Resources (MDNR) grant programs to
acquire parkland.
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There are several approaches to acquiring land (or interest in it) to advance the goals of the Comprehensive
Plan. Generally, the Township can take direct action to acquire or lease property, acquire development
rights, purchase easements, or it can rely on privately initiated, voluntary land protection efforts.

Direct Action by the Township

The Township can acquire property through purchase or can acquire a partial interest through acquisition of
easements. Acquisition provides the greatest level of control over the use of land, but it also is the most
expensive method of acquisition. In addition to the acquisition costs, purchase removes property from the tax
rolls, resulting in a decrease in property tax revenues.
Easements are distinct property rights that may be sold to the Township separately from other rights.
Conservation easements are effective for preserving sensitive lands, providing public access along rivers or
greenways, and allowing property owners to obtain income, estate, and property tax benefits for land
stewardship while they continue to live on their land.
Three Michigan statues address the issue of conservation easements:
1.

The Farmland and Open Space Preservation Act (Public Act 116 of 1974, as amended) provides for
dedication of an easement to a public entity, such as the Township or State.

2.

The Conservation and Historic Preservation Easement Act (Public Act 197 of 1980, as amended)
gives a third party, such as a land trust, the right to enforce an easement. This act assumes that the
easement will be perpetual.

3.

The Township Zoning Act was amended in 1997 to enable townships to purchase development rights
from private property owners. By purchasing development rights, a township can acquire a
landowners right to develop a piece of property for a specific number of home sites or other use. By
selling such rights, a landowner may obtain some benefits on estate taxes and property taxes
because the lands value as developable property has diminished.

Private Voluntary Land Protection Efforts

Instead of taking direction, the Township can encourage and rely on private voluntary land protection efforts.
In this context the term voluntary has two meanings:
1.

Property owners can voluntarily donate land or easements in the interest of conserving natural
resources or natural features.

2.

Private land trusts can facilitate a resource protection program by use of a variety of land acquisition
and conservation techniques. Like local government, land trusts typically rely on fee simple
acquisition and acquisition of easements.

Other than acquisition at full market value, private tools available to preserve land include:
1.

Donation of land or bargain sale (acquisition at below full market value).

2.

Options to buy (often used to secure a parcel of land while funding is being obtained).

3.

Rights-of-first-refusal (used to tie up a parcel without have to purchase it immediately).

4.

Leases (temporary control without the expense of acquisition).

5.

Pre-acquisition by a land trust (the land trust serves as the intermediary for the public agency, such
as the Township), and

6.

Conservation investment (in essence, real estate syndication for the purpose of resource protection).

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Several variations on the land preservation techniques described above are discussed below:

Land Conservancy Activities Involving the Government

1.

Private donations of land to the government.

Landowners are sometimes willing simply to donate land for park, open space or natural area preservation
purposes. The landowner has the satisfaction of seeing the parcel of land preserved, and may obtain some
benefits on income taxes, estate taxes and property taxes. The Township obtains the benefit of preserving
the land. The Macatawa Area Greenway Network could become an active partner in this effort, especially as
to management of such lands.
2.

Private donations of conservation easements to the government.

Landowners are sometimes willing to donate a conservation easement on a parcel of land. This involves the
transfer of a partial interest in a parcel of land for preserving its natural amenities. The landowner might retain
the right to continue to occupy the land, but the right to use it for particular uses, such as for the development
of home sites, has been donated to the government. The landowner has the satisfaction of seeing the parcel
of land preserved and may obtain some benefits on income taxes, estate taxes and property taxes. The
Township obtains the benefit of preserving the land and avoids some of the costs of maintaining the property.
3.

Private donation of land to the government with the right to use the land until the donors death.

A landowner sometimes wants to retain full title to a parcel of land and be able to continue to use it until his or
her death, but wishes to have the land transferred to the government at that time. The landowner can thereby
gain some tax benefits, but continue to use the land until his or her death.
4.

Governmental purchase of conservation easements.

A landowner may not be willing to donate a conservation easement, but may be willing to sell such an
easement to the Township. The landowner might retain the right to continue to occupy the land, for example,
but the right to use it for particular uses (e.g., to build houses on it or change its scenic character) has been
sold to the government. The landowner would receive some payment for the easement and may obtain some
benefits on estate taxes and property taxes. This alternative would cost the Township some revenue, but the
cost would be less than the purchase of all the rights to the land.
5.

Governmental leasing of land.

A landowner may not wish to lose permanent title to a parcel of land, but may be willing to lease it to the
government for public use for a specified period.
6.

Placement of private land under the protection of the Farmland and Open Space Preservation Act
(PA 116 of 1974, as amended) or the Conservation and Historic Preservation Easement Act (PA 197
of 1980, as amended).

These two state laws can be used by private citizens and local government to protect land for specified
periods of time. The landowner can thereby reduce the property taxes on the land, and the government gains
the benefit of maintaining the land as open space.

Land Conservancy Activities Involving a Private Conservancy Organization

Most of the transactions between a landowner and the government can also occur between the landowner
and a private land conservancy organization such as the Macatawa Area Greenway Network, the Nature
Conservancy and the American Farmland Trust. The conservancy organization would then either manage
the land itself or convey it, at some future date, to a governmental agency when public funds become
available.

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1.

Private donations of land to a conservancy organization.

Landowners are sometimes willing to donate land to a conservancy organization for open space or natural
area preservation purposes. The landowner has the satisfaction of seeing the parcel of land preserved, and
may obtain some benefits on income taxes, estate taxes and property taxes. The conservancy organization
obtains the benefit of preserving the land.
2.

Private donations of conservation easements to a conservancy organization.

Landowners are sometimes willing to donate a conservation easement on a parcel of land, which involves the
transfer to a conservancy organization of a partial interest in a parcel of land for preserving its natural
amenities. The landowner might retain the right to continue to occupy the land, for example, but the right to
use it for particular uses (e.g., to build houses on it or otherwise change its scenic character) has been
donated to the conservancy organization. The landowner would have the satisfaction of seeing the parcel of
land preserved and may obtain some benefits on income taxes, estate taxes and property taxes. The
conservancy organization obtains the benefit of preserving the land, and avoids some of the costs of
maintaining the property.
3.

Private donation of land to a conservancy organization, with the right to use the land until the donors
death.

A landowner sometimes wants to retain full title to a parcel of land and be able to continue to use it until his or
her death, but wishes to have the land transferred to a conservancy organization at that time or some other
specified time. The landowner can thereby gain some tax benefits, but continue to use the land until his or
her death.
4.

Conservancy organization purchase of conservations easements.

A landowner may not be willing to donate a conservation easement but may be willing to sell such an
easement to a conservancy organization. The landowner might retain the right to continue to occupy the
land, for example, but the right to use it for particular uses (e.g., to build houses on it or change its scenic
character) has been sold. The landowner would receive payment for the easement, and may obtain some
benefits on estate taxes and property taxes.
5.

Conservancy organization leasing of land.

A landowner may not wish to lose permanent title to a parcel of land, but may be willing to lease it to a
conservancy organization for public use during a specified period.

VI -

Land Use Controls

Zoning Regulations

The Holland Charter Township Zoning Ordinance will be the primary tool used by the Township to implement
its Comprehensive Plan. Various revisions to the Zoning Ordinance are necessary to effect many of the
recommendations set forth in this Plan.
1.

Establishment of New Residential Zoning Districts.

One of the basic elements of a zoning ordinance is the zoning district within which various compatible and
complimentary land uses are to be located. The Future Land Use Map discussed in Chapter 9 of this Plan
establishes the basis for creation of new zoning districts and the possible alteration of current zoning district
boundaries for achieving the goals, objectives and recommendations set forth in this Plan.

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2.

Downzoning, Upzoning and Residential Density Standards.

Downzoning occurs when land is rezoned to stipulate less intensive uses than previously permitted.
Upzoning permits more intensive land uses than previously permitted. Downzoning that occurs as part of a
comprehensive revision to a zoning ordinance for implementing a comprehensive plan usually receives
deferential and favorable judicial review if challenged.
The residential density classifications on the Future Land Use Map provide the basis for possible downzoning,
and in some instances, upzoning, in conjunction with revisions to the Zoning Ordinance and Zoning Map.
3.

Revised and Expanded Special Land Use Provisions.

A special land use is a use that possesses unique characteristics or features that could be incompatible with
the predominant uses of land in a particular zoning district unless specific standards of operation are met.
Review and approval procedures are used on a case-by-case basis as a means of assuring that standards for
approval can be met, and that undesirable impacts occasioned by such uses are avoided.
The Township Zoning Act gives the Township broad discretion when reviewing and acting on requests for
special uses. More widespread application of special land use regulations is recommended to address the
impact from uses that generate off-site impacts, particularly in the commercial and industrial districts, and
relating to large-scale residential developments.
The Townships Zoning Ordinance needs to be amended to establish a separate chapter dealing specifically
with the review and approval of special uses. In its current format, the standards applicable to the review and
approval of special uses are unnecessarily limited. This limitation prevents the Township from exercising its
full authority over the review and approval of special uses.
4.

Planned Unit Development (PUD) Zoning.

PUD zoning involves the use of flexible standards and a review procedure intended to provide flexible design
and regulatory requirements as a means of encouraging innovation in land development planning and design.
PUD zoning, when properly administered, enables a community to achieve a higher quality of land
development than is typically possible using conventional zoning techniques.
PUD zoning can be applied to conventional platted subdivisions, site condominiums, multi-family rental
apartments or condominium projects, and mixed-use land developments. PUD zoning has become
increasingly popular within the development community because of the realization that conventional zoning
hampers the development of oddly shaped sites, or sites that exhibit significant areas of natural features.
PUD zoning has the potential to achieve development in accordance with the goals, objectives, and strategies
set forth in this Plan. It can be used to require open space or cluster development and to facilitate infill
development within the existing urban service area.
5.

Performance Standards.

Rather than simply regulating development based on fixed zoning standards, many communities have
established performance standards to regulate development based on the permissible effects or impacts of a
proposed use. Performance standards should be used to supplement conventional zoning standards for the
purposes of regulating noise, dust, vibration, odor, glare and heat, safety hazards, and environmental
impacts. The complexity of such performance standards should be based, in part, on the ability of Township
staff to administer them
Performance standards can be particularly useful in achieving environmental and resource protection goals.
If based on a strong body of research, standards can be developed that relate to critical environmental areas
(such as floodplains, rivers, wetlands, lakes, woodlands, groundwater recharge areas, and unique wildlife
habitats), natural resource areas (such as prime farmland and forest lands), and waterfront access.

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6.

Incentive Zoning.

Incentive zoning allows a developer to exceed the dimensional and density limitations in the Zoning
Ordinance if the developer agrees to comply with conditions applicable to the approval of a specific land use.
Incentive zoning should be considered to promote innovative land development techniques identified in the
Plan. For example, a possible increase in density can be used as an incentive for developments that
implement rural open space zoning standards.
Incentive zoning, possibly in the form of increased density, can also be used to facilitate infill development on
parcels located within the existing urban service area. This could discourage development in the more rural
portions of the Township. Incentives must be built into PUD provisions to trade higher density allowances for
good design practices and useable open space.
7.

Setback and Other Dimensional Standards.

It is important to review established setbacks and other dimensional standards to be certain that they promote
the types of development envisioned by the goals and objectives specified in Chapter 3. The Township
should consider the adoption of standards that permit investment and construction in accordance with
variable design standards (such as zero lot line setback, smaller lot size, etc.) without the need for variances
in certain settings.
Setback standards in commercial districts should be reviewed to be certain that they assure the corridor
revitalization goals of the Township. If side or rear parking areas are preferred, then it will be necessary to
revise the setback standards to allow placement of the buildings closer to front lot lines. It may also be
necessary to revise parking area requirements to specifically require that parking areas be located beside or
behind buildings.
Other zoning standards related to commercial and non-residential development should also be reviewed. The
Township may wish to consider modifying current parking, sign, landscaping, screening, and related zoning
standards in an effort to stimulate consistently attractive business and industrial site development and
redevelopment.
8.

Overlay Zoning.

Overlay zoning will allow Holland Charter Township to establish supplemental regulations applicable to
specific geographic locations in underlying zoning districts. In an area where an overlay-zoning district is
established, property must be developed in compliance with the standards stipulated by both the overlay and
underlying zoning district regulations. Thus, the overlay district regulations supplement the regulations of the
underlying zoning district. Overlay zoning has been used in other communities to address special conditions
and features such as unique neighborhoods, environmentally sensitive areas, and access management areas
along key commercial roadway corridors.
Overlay zoning should be considered as a means of addressing access management along Quincy Street,
James Street, Lakewood Boulevard, 136th Avenue, Adams Street, Butternut Drive from 136th Avenue to
Riley Street/144th Avenue area. An additional overlay zone should be considered along the Lake Macatawa
shoreline to facilitate infill development, redevelopment, and areas of sensitive natural resources.
Overlay zoning is also an effective tool to protect groundwater recharge areas, provided that a study is first
completed to identify the recharge area boundaries and to identify appropriate protective measures.

Subdivision Regulations

The Townships Subdivision Control Ordinance outlines the procedures and standards used by the Township
in exercising its authority to review and approve proposed land divisions and platted subdivisions, pursuant to
the Land Division Act (Michigan Public Act 288 of 1967, as amended). Subdivision control ordinances
typically require the appropriate design of lots and blocks, subdivision access, and improvements and
infrastructure such as street, storm drainage, sanitary sewer and water facilities.
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The Land Division Act places restrictions on a municipalitys power to approve or reject plats, indicating that a
rejection may not be based on any requirement other than those included in Section 105 of the Act.
Nevertheless, many legal experts believe that the Act grants municipalities much greater authority over the
development of platted subdivisions than they have typically exercised.
The Townships Subdivision Control Ordinance should be thoroughly reviewed and revised to assure that the
Township can exercise its full scope of regulatory authority relating to subdivision design, environmental
impacts, relationships to adjacent land uses, and impacts on level of public services.
The Township should also consider requiring developers to submit two subdivision layouts for review at the
tentative preliminary plat stage, one illustrating a conventional design and the second illustrating a design
based on clustered units with open space. In the event that the open space design is used, the conventional
layout might serve as the basis for determining the maximum number of lots permitted in the subdivision.

VII -

Special Purpose Districts

Some of the recommendations in the Comprehensive Plan can be best accomplished through creation of
special districts. Special purpose districts that may have applicability in Holland Charter Township are
discussed below.

Downtown Development Authority

Michigan Public Act 197 of 1975, as amended, provides for the establishment of a downtown development
authority (DDA) in the Townships business district, upon finding by the Township Board that the DDA is
necessary to halt property value deterioration and increase property tax valuation where possible in its
business district, to eliminate the causes of deterioration, and to promote economic growth.
The creation of a DDA has the benefit of bringing business people and Township officials together in a
cooperative setting to address problems in the business district. Act 197 also provides a means of financing
the DDAs activities, including a maximum two-mill property tax within the district, tax increment financing and
issuance of bonds. In other communities, DDAs have undertaken streetscape and road improvements, utility
replacement, acquisition and demolition of blighted buildings, parking lot construction, and other improvement
activities.
Formation of a DDA should be considered for the planned commercial area north of Felch Street and
extending along the planned extension of West Shore Drive. Commercial site infill or redevelopment along
8th Street and Butternut Drive may also be applicable areas for DDA involvement.

Technology Park Development Act

Michigan Public Act 385 of 1984, as amended, provides for the establishment of technology park districts and
exemption from certain property taxes for qualified research and development and high technology uses.
High technology service activity is defined in the Act as a use that has as its principal function the providing
of services including computer, information transfer, communication, distribution, processing, administrative,
laboratory, experimental, developmental, technical, or testing services. This Act could be an effective
inducement for development of a research park along James Street, New Holland Street and the HEDCOR
Industrial Park.

Local Development Financing Act

Michigan Public Act 281 of 1986, as amended, provides for the establishment of a local development finance
authority (LDFA) to undertake economic development activities that promote manufacturing of goods or
materials, agricultural processing, or high technology activity. A typical LDFA project might involve
construction of roads and utilities deemed necessary for a specific manufacturing or high technology
development project. LDFA activities are most frequently financed through tax increment financing or through
issuance of revenue bonds that are retired using tax increment revenues.
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Neighborhood Area Improvements Act

Michigan Public Act 208 of 1949, as amended, authorizes townships to designate neighborhood areas for the
purpose of planning and carrying out local public improvements for the prevention of blight. The Act calls for
preparation of neighborhood betterment plans by the Planning Commission. The Act also provides methods
of financing improvements within neighborhoods, including special assessment districts and issuance of
neighborhood improvement bonds. This Act might prove useful in achieving improvements for the area
between 8th Street and Chicago Drive and other older neighborhoods in the Township.

VIII - Financing Tools

Successful implementation of the Comprehensive Plan will depend on the ability of the Township to secure
necessary financing. Besides the general fund, the following sources of revenue are available to the
Township:

Dedicated Millage

A special millage can be used to generate revenues for a specific purpose. The Townships bike path millage
is an example of a dedicated millage. The Township should consider other opportunities for special millages
to implement recommendations in the Comprehensive Plan. For example, one Michigan community has a
special land acquisition fund that is supported by a one-quarter mill property tax. A land acquisition fund
would be a useful tool to promote open space conservation/preservation in the Township.

Michigan State Housing Development Authority (MSHDA)

The MSHDA Home Improvement Program (HIP) provides low interest loans for home improvements through
local lending institutions. Interest rates on loans are related to income of the recipient. This program may be
used to improve property that is twenty years or older or in need of repair, to correct hazards or safety
concerns, or to achieve energy conservation.
The Neighborhood Improvement Program (NIP) is another home improvement program that is directed
toward specific revitalization areas. The program operates similarly to the HIP with local lending institutions
participating in the program. These programs might be useful in older neighborhoods.

Special Assessments

Special assessments are compulsory contributions collected from the owners of property benefited by specific
public improvements (paving, drainage improvements, etc.) to defray the costs of such improvements.
Special assessments are apportioned according to assumed benefits to the property affected. Special
assessment funding might prove useful to implement neighborhood improvements, streetscape improvements
in the commercial districts, parallel access drives in commercial district fronting on arterial streets, and to
construct connecting local roads.

Bond Programs

Bonds are one of the principal sources of financing used by communities to pay for capital improvements.
General obligation bonds are issued for specific community projects and are paid off by the public with
property tax revenues. Revenue bonds are issued for construction of projects that generate revenues. The
bonds are then retired using income generated by the project (for example, water and sewer service
charges).

Tax Increment Financing

Tax increment financing is authorized by the Downtown Development Authority Act (DDA) and the Brownfield
Development Authority. When a tax increment finance district is established, the state equalized value of all
properties in the district is recorded. Every year thereafter, the property tax revenue generated by an
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increase in the total state equalized value is captured by the DDA or LDFA to finance the improvements set
forth in a development plan. Often, revenue bonds are issued to finance the improvements, and the tax
increment revenues are used to repay the bonds.
To some extent, Proposal A and other legislative actions have reduced the effectiveness of tax increment
financing as a means of financing public infrastructure improvements.

Michigan Department of Natural Resources Recreation Grant Programs

The Townships Parks and Recreation Plan, adopted in March of 1996, establishes the Townships eligibility
for park and recreation facility acquisition, development and redevelopment projects until the year 2001. The
plan includes a detailed seven-year action and financial program that states the Townships proposed course
of acquisition and development actions that will be taken through the year 2002.
The three funding programs administered by the MDNR include:
1.

Land and Water Conservation Fund Available for park development projects.

2.

Recreation Bonds Available for park development.

3.

Michigan National Resources Trust Fund Available for park development and land acquisition.

The Township has effectively used these programs in the past to partially finance parkland acquisition and
development projects. The plan should be updated as necessary to maintain eligibility for funding assistance
and when year 2000 census data becomes available.

Community Development Block Grant Program (CBDG)

The Community Development Block Grant program provides Federal funds on an annual basis to local
governments for a variety of programs that are intended to benefit low and moderate-income residents of
certain target populations, such as the elderly. These funds could be used for community development
activities, such as housing rehabilitation and infrastructure improvements. The funds should be used in a
manner prescribed in a neighborhood revitalization strategy plan for these neighborhoods.

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