City of Milwaukee - File #: 240402

• File #: 240402
• Version: 2
• Type: Ordinance
• Status: Passed
• File created: 7/2/2024
• In control: COMMON COUNCIL
• Final action: 7/15/2025
• Effective date: 8/2/2025
• Title: Substitute ordinance adopting the Milwaukee’s Comprehensive Plan: Housing Element as the housing element of the Citywide Policy Plan as part of City of Milwaukee’s overall Comprehensive Plan, and directing implementation.
• Sponsors: ALD. BROSTOFF, ALD. CHAMBERS JR., ALD. ZAMARRIPA, ALD. MOORE, ALD. BURGELIS, ALD. BROWER, ALD. DIMITRIJEVIC
• Indexes: CITY PLANNING, HOUSING

Date	Ver.	Action By	Action	Result	Tally
7/15/2025	2	COMMON COUNCIL	PASSED; Minutes note: Ald. Dimitrijevic added as a cosponsor.	Pass	12:2
7/8/2025	1	ZONING, NEIGHBORHOODS & DEVELOPMENT COMMITTEE	SUBSTITUTED; Minutes note: Appearing: Ald. JoCasta Zamarripa, 8th Ald. Dist. Ald. Sharlen Moore, 10th Ald. Dist. Ald. Mark Chambers, Jr., 2nd Ald. Dist. Ald. Peter Burgelis, 11th Ald. Dist. Sam Leichtling, DCD Amy Oeth, DCD Presentation was made. Ald. Burgelis added as a cosponsor to Proposed Substitute A. Ald. Spiker moved substitution of the file to accept Proposed Substitute A. (Prevailed 5-0) Proposed Substitute A accepted into the file and labeled as Substitute 2.	Pass	5:0
7/8/2025	2	ZONING, NEIGHBORHOODS & DEVELOPMENT COMMITTEE	RECOMMENDED FOR PASSAGE; Minutes note: Public testimony in support: Melody McCurtis, Metcalfe Park Community Bridges Darryl Johnson, Riverworks Development Corp. Brian Peters, Independence First Alice Pew, Nash Park Joanna Bauch, near south side Jenny, Homes Coalition Montavius Jones, Homes Coalition	Pass	5:0
6/6/2025	1	CITY CLERK	PUBLISHED
6/2/2025	1	CITY PLAN COMMISSION	APPROVED CONDITIONALLY; Minutes note: There is a Proposed Substitute A version for consideration by the commission. Proposed Substitute A version adopts the Milwaukee’s Comprehensive Plan: Housing Element as the housing element of the Citywide Policy Plan as part of the City’s overall Comprehensive Plan, and directs relevant City departments and agencies to consider this Plan in matters related to land use and development and work toward implementation of the Plan. Appearing: Sam Leichtling, DCD Deputy Commissioner Amy Oeth, DCD Planning Deputy Commissioner Leichtling and Ms. Oeth gave a presentation pertaining to definitions (policy, zoning codes and maps), rationale for the plan (provide diverse housing types, market trends, population/density change), overview of the planning process, engagement, themes from engagement, benefit and harm analysis, key priorities, feedback, summary of changes to neighborhood housing diversity, related policy updates to neighborhood-scale housing, near-term strategy, policy updates, commitments to support Milwaukee's housing system (legislative advocacy, intergovernmental collaboration, home ownership, anti-displacement), plan name change, recap of updates to the plan and goals, acknowledgment of various contributory groups, recommended adjustments, and adoption process. The commission held the file last July 2024 to allow additional engagement with the community and consideration of a benefit and harm analysis. Those tasks had occurred prompting the file to be before the commission today. There was discussion on engagement process going forward, lessons learned from other cities, conditions (further recommended adjustments), and potential additional changes. Public testimony: Ald. JoCasta Zamarripa, 8th aldermanic district, testified as cosponsoring the file, having attended many of the community input sessions, having the goal for this file to address the City's housing crisis and costs by providing a diversity of housing options. Ald. Mark Chambers, Jr., 2nd aldermanic district, testifed as cosponsoring the file, that the plan does something unique and creative and that engagement from DCD has been transparent. Ald. Sharlen Moore, 10th aldermanic district, testified as cosponsoring the file, that there was sufficient engagement, and the plan needs to be adopted now (as opposed to trying to find perfection) to address the issue of housing affordability. Ald. Peter Burgelis, 11th aldermanic district, testified that he was encouraged by the new plan, did not hold a position in either support or opposition, and that the plan does not appear to reflect any community representation from his aldermanic district. Dr. Eve Hall, Greater Milwaukee Urban League, testified in support of the plan's commitment to homeownership, tenants, anti-displacement, and intergovernmental collaboration. Melody McCurtis, Metcalfe Park Community Bridges, testified in support, that the plan and engagement process have improved, lessons were learned, they have additional recommendations to strengthen the plan, and for the City to invest in having more robust engagement going forward. Danell Cross, Metcalfe Park Community Bridges, testified in support and that the engagement process has improved. Mark Foley, Historic Watertown District resident and homeowner, testified in advocacy of single-family housing and being opposed to the plan, which he believes will invite and allow absentee rental housing, such as from ADUs, into single family housing districts such as his. There should be homeownerhship choice and an exception made to historic district neighborhoods. Amber Miller, AARP Wisconsin, testified in support of ADUs as middle housing for the elderly and senior citizens. Allen Witt, engineer, testified that an internal ADU needs to be changed from a permitted use to a special use in order to protect neighborhoods, comprised of homeowners, against an influx of absentee rental housing. There was discussion on ADUs related to homeownership occupancy requirement, HOAs, historic preservation and design review, and possible future modification of the plan to address unintended implications. Cade Gerlach, east side resident, testified in support, that he was disappointed by the removal of tri-plexes and duplexes from the plan, that an increase in housing variety will benefit all neighborhoods, and that the plan will result in construction job opportunities. Pam Frautschi, east side resident, testified in support for more housing variety, more job opportunities for residents, historic preservation, and greenspace. She concurred with the same concerns about ADUs. Dujuan Shepard, resident and landlord, testified in support of the plan and ADUs, that there should be a case-by-case consideration of every individual property, and that landlords like himself should be permitted to install an ADU. Dan Adams, Milwaukee County Transit System, testified in support of the plan's cohesion with MCTS public transit routes and access points regarding the type of neighborhoods that will be developed. David Walla, Halyard Park resident, testified in support of ADUs, multi-plexes, and that increases in housing supply and zoning variety will decrease housing/rental costs. Jenny Tasse, 1000 Friends of Wisconsin, testified in support of more rental and accessible housing. Amy Horst, east side resident, testified for there to be further consideration of local control and to distinguish duplexes from tri-plexes and four-plexes. JoAnna Bautch, VIA CDC, testfied in support of the plan, engagement, more housing options, and more homeownership. Montavius Jones, Uptown Crossing BID #16, testified in support; being disappointed by the removal of duplex, tri-plex, and four-plex; and that existing zoning is too restrictive. William Schmitt, Rooted and Rising, testifed in support and advocated for more safe and affordable housing. Sy Smith, Five Points resident, testified in opposition. Despite improvement, the plan is inadequate. The plan risks gentrification and displacement for senior citizens, middle-aged, and disabled homeowners. The engagement was still lacking for some. She advocated for stabled neighborhoods and homeownership protections. The plan is too broad, fails to address various specifics, and lacks review by the Equal Rights Commission. Kevin Kuschel, Clarke Square Neighborhood Initiative, testified in support and that the plan will help improve housing affordability and density. Kevin Germino, east side resident, testified in support and that the plan will help improve homeownership affordability and flexiblity. There was discussion on the plan being translated in other languages, limited use standard (as opposed to a special use) for an ADU, Equal Rights Commission review, monitoring and reporting of harm and benefit impacts of the plan via future annual housing reporting analysis and other measures, BOZA variance pathway for a landlord to pursue an ADU, and future zoning text changes to follow after adoption of the plan. Staff recommends approval and with further technical recommendations, as previously stated, to be made to the plan prior to Common Council review. Commissioners commended DCD staff for the improved engagement process and work achieved. Commissioner Smith moved approval conditionally, seconded by commissioner Moody, of Proposed Substitute A. (Prevailed 7-0) Conditions: 1. Add additional acknowledgment and thanks to community groups who invested time, provided advocacy and feedback, and distributed information 2. On page 6, add additional text to show linkages between Housing Element and neighborhood development, job creation, and community safety planning and policy initiatives 3. On page 25, add further explanation of the units lost over time – highlight impacts of predatory lending and sub-prime mortgage foreclosures on vulnerable neighborhoods 4. On page 40, adjust language in policy II.A.1 to reference access to capital for development activities at a variety of scales 5. Clerical edits – spelling, duplicate text, and adjustments to formatting as needed	Pass	7:0
6/2/2025	1	CITY PLAN COMMISSION	REFERRED TO	Pass	7:0
5/16/2025	1	CITY CLERK	PUBLISHED
7/29/2024	1	CITY PLAN COMMISSION	HELD IN COMMITTEE; Minutes note: Appearing: Lafayette Crump, DCD Commissioner Amy Oeth, DCD Planning Khari Bell, Community Engagement Specialist Commissioner Crump made initial remarks. Mr. Leichtling, Ms. Oeth, and Mr. Bell gave a presentation relative to Growing MKE, comprehensive planning in Milwaukee, advancing plan recommendations and City goals, zoning codes and maps, Milwaukee's zoning over time, zoning for housing in Milwaukee, reasons for taking on the policy now, market trends, housing in the next 20 years, new development - two decades of zoning development, RS zoning districts, accessory dwelling units, limits on the number of new homes, missing middle housing, heavy reliance on planned developments, advancing equity in zoning, best practices - equity in zoning, growth and equity, density and growth as economic decisions, increasing and preserving Black and Latino homeownership, creating and preserving affordable rental housing, planning process, collaborative process, overview of the planning process, engagement across multiple platforms, engagement, themes from the public comments throughout process and draft plan, Growing MKE goals, plan amendment policies, zoning recommendations, recommendations 1-4, user-friendly process, changes to the plan based on feedback, and removal of small multi-family buildings recommendation. Further details of the presentation can be found within the file, Common Council File Number 240402. Public testimony in opposition and/or with concerns: Ald. Scott Spiker, 13th Ald. Dist. Ald. Russell Stamper, II, 15th Ald. Dist. Rep. Supreme Moore Omokunde, Wisconsin State Assembly District 17 Megan Shepard-Smith, Midtwon neighborhood resident Topacio Lucero, north side resident Joseph Ellwanger, resident and Evangelical Lutheran Church retired pastor Lueverne Laviolette, Metcalfe Park resident Sheila Kitchens, north side resident Rodney Johnson, Midtown neighborhood resident Marion Autman, Metcalfe Park resident Danelle Cross, Metcalfe Park Community Bridges Brittney Taylor, Metcalfe Park resident Brendetta Taylor, Amani resident Mr. Winston Dynasty Ceasar, The Redress Movement Melody McCurtis, 15 Ald. Dist. resident Fatima Laster, 5 Points Neighborhood Association Patrice Gransberry, north side resident Ramona Curry, Lindsey Heights resident Cheryl Hayes, Walnut Way resident Maria Carmen Beltran, Lindsey Heights resident and NID 12 Chair Gail Lightfoot, Midtown neighborhood resident Patrice Johnson, Midtown neighborhood resident Barbara Cooley (virtual participant) Sy Smith (virtual participant) Dr. Nicole Robinson (virtual participant) Public testimony in support: David Bowen, AARP Wisconsin Cade Gerlach, east side resident, Carl Glasemeyer, north side resident Corbeau Caldwell, north side resident Marybeth McGinnis, north side resident Teig Whaley-Smith, Community Development Alliance Aaron Moriak, east side resident Owen Driscoll, Rufus King high school student and Milwaukee Youth Council John Johnson, Marquette Universtiy researcher Jacob Major (virtual participant) Montavius Jones, Sherman Park resident (virtual participant Others testifying: Ald. Sharlen Moore, 10th Ald. Dist. Antonio Butts, Walnut Way Conservation Corps (virtual participant) Ald. Moore indicated she wanted to mainly listen to testimony. Those in opposition testified in objection to adding density and large multi-housing rental developments into their communities. They had significant concerns that the plan lacked adequate inclusiveness and engagement from Black and Brown communities within the City; was flawed in its current form; had a singular focus to only add density in neighborhoods; was not addressing systematic community issues, zoning issues, and/or needs; served to benefit only nonresident tenants, investors, and developers instead of City residents; would cause negative unintended consequences; would exacerbate many public health and safety issues prevalent in Black and Brown communities; was not racially equitable; would impact their communities the most due to their communities having the most available vacant lots and homes that would be of target to add density to; and was being rushed rather than being carefully vetted. Those in opposition testified that they did not want their voices to be suppressed or marginalized; that there was a lack of adequate time for them to review the plan; that community issues and considerations needed to be addressed prior to a plan or be addressed within the plan; that the plan be broken down to cater to each community uniquely rather than being applied citywide; that there be a significant delay in the plan’s approval process; that there be better, thorough, and inclusive vetting, engagement; and that all communities and stakeholders should be engaged together as one to develop the plan. Community issues and/or considerations that many wanted to be addressed prior to a plan or integrated as part of a plan would include (but not be limited to) the aspects of poverty, landlord absenteeism and accountability, gentrification and displacement (especially for the elderly, disabled, and young adults), revitalization of current housing stock, affordable housing, improving multi-housing maintenance and living conditions, homeownership instead of rentals, access to healthy food and medical services and options, public health and safety, crime, human resource requirements and hiring of residents on new multi-housing developments, real estate prejudice, equity, homelessness, legacy of Black and Brown communities, inflated tax assessments, concentration of low-income tax credit housing, environmental sustainability and greenspace, updating the Anti-displacement Plan, housing reparations and/or subsidies, reckless driving and street infrastructure, adequate modal and bus transit routes, lead laterals, erosion controls, co-ops, generational wealth creation, and tenancy requirement reform. Some in opposition testified in support of the plan relating to town homes, multiple homes, and cottages; however, they advocated for homeownership over rentals. Those testifying in support were in favor of middle housing, increasing affordable housing, increasing the property tax base, increasing density, zoning reform, having multiple housing in the interior of neighborhoods, town homes, cottages, and there being no major delay in the plan among other aspects. Many in support concurred that the plan may need further community engagement and to attempt to build consensus from impacted communities of color and attempt to address some of the concerns raised by those testifying in opposition at the hearing. A number of speakers indicated support for reconsidering the recommendation that had been removed from the draft plan to permit small multi-family buildings within neighborhoods so multi-family housing is not only encouraged on commercial corridors and other busy streets. Mr. Butts testified that his firm was hired to help with the plan, they had positive intentions as the engagement team, and they will have more robust and inclusive engagement going forward. Commissioner Crump said their office recommended to hold the matter and for the commission to not take action. His office was acknowledging the request from many community members in wanting more time for outreach and engagement. DCD staff said further community engagement would occur. Commissioners commented. As plan development and engagement continue, staff should review frameworks that other cities have utilized for similar work such as the Minneapolis 2040 Plan. Staff should also explore how to use this opportunity to demonstrate that complementary efforts are underway to “repair” in addition to growing through new housing development and take a broad based comprehensive approach to addressing some of the concerns that were raised during the hearing today even if they may be beyond the specifics of zoning, housing, and land use policy. A glossary should be prominent in the plan to explain key terms. Ongoing engagement strategies should be tailored to specific needs of targeted communities. Staff should continue to explore what tools can be used that are permitted by WI law to address some of these goals of tenants’ rights and affordability. Staff committed to provide additional data and information on impacts on homeownership and anti-displacement when the plan is presented in the future and to consider additional adjustments related to those policy goals, as appropriate. Member Smith moved to hold to the call of the chair, seconded by member Crane. (Prevailed 6-0) Excused - Washington	Pass	6:0
7/15/2024	1	CITY CLERK	DRAFT SUBMITTED
7/9/2024	0	ZONING, NEIGHBORHOODS & DEVELOPMENT COMMITTEE	REFERRED TO
7/2/2024	0	COMMON COUNCIL	ASSIGNED TO

Number
240402
Version
SUBSTITUTE 2
Reference
220403, 221580, 230231, 230954, 230958
Sponsor
ALD. BROSTOFF, CHAMBERS, ZAMARRIPA, MOORE, BURGELIS, BROWER AND DIMITRIJEVIC
Title
Substitute ordinance adopting the Milwaukee’s Comprehensive Plan: Housing Element as the housing element of the Citywide Policy Plan as part of City of Milwaukee’s overall Comprehensive Plan, and directing implementation.
Analysis
This substitute ordinance adopts the Milwaukee’s Comprehensive Plan: Housing Element as the housing element of the Citywide Policy Plan as part of the City’s overall Comprehensive Plan, and directs relevant City departments and agencies to consider this Plan in matters related to land use and development and work toward implementation of the Plan.
Body
Whereas, On March 2, 2010, the Common Council of the City of Milwaukee (“Common Council”) adopted Common Council File No. 090882, approving the Citywide Policy Plan as an element of the City of Milwaukee’s overall Comprehensive Plan pursuant to s. 66.1001, Wisconsin Statutes, which requires that local municipalities adopt and periodically update a comprehensive plan containing an element that includes objectives, policies, and goals for housing; and

Whereas, The Citywide Policy Plan includes a “Housing and Neighborhoods” chapter, which served as the required housing element of the City of Milwaukee’s Citywide Policy Plan, and, that, along with the recommendations contained within the 14 Area Plans that make up the City of Milwaukee Comprehensive Plan, makes recommendations related to housing development and land use throughout the city; and

Whereas, On July 28, 2022, the Common Council adopted Common Council File No. 220403, directing the Department of City Development (“DCD”) to develop an update to the housing element of the Citywide Policy Plan to include proposed updates to portions of the City of Milwaukee’s Zoning Code that govern residential development; and

Whereas, The City of Milwaukee’s (...