Commission recommends special exception for school boardwalk and path through wetland area at West Forest Hill

The Franklin Environmental Commission on Jan. 8, 2025 recommended approval of a natural resource special exception for construction of a raised boardwalk and asphalt path associated with Franklin Public Schools’ development near 8225, 8255, 8429 and 8459 West Forest Hill Avenue.

School officials and the project civil engineer described the project as a primarily raised boardwalk with short asphalt approaches that connects the district office/administration building area to fields and parking associated with the middle school. Andy Cromie, Assistant Superintendent for Franklin Public Schools, said the path will provide safer pedestrian access between parking areas and playing fields and will serve overflow parking on soccer Saturdays as well as daily use by students and visitors.

Staff reported the site plan includes approximately 1,046 square feet of wetland disturbance, 528 square feet of wetland buffer impact and 2,114 square feet of wetland setback impact when the full boardwalk/approach length is counted; staff clarified that the physical disturbance is limited mostly to posts resting on the ground because the boardwalk is raised and does not require deep pilings. The proposed construction uses treated timber components (described as two‑by‑tens and planking) resting on the ground, a design staff said is modeled on a boardwalk used at the Schmiedke Reserve in Stevens Point.

Engineer Jesse Becker described the boardwalk as resting on planks and posts that sit on the ground rather than driven pilings, which staff said reduces long‑term disturbance and simplifies maintenance. "This allows water to continue to flow through just as it normally would," Becker said of the raised boardwalk. Staff recommended approval with the condition that the existing conservation easement on the site be revised to reflect the most recent wetland delineation and the approved design.

Commissioners raised questions about year‑round maintenance, winter plowing and accessibility for people with disabilities. Staff and applicants said the boardwalk is intended primarily for spring‑through‑fall use and will not be plowed in winter; applicants noted it is intended to provide accessible routes to an inclusive playground and that special‑needs students using the facility would be supervised by school staff during programming. Commissioners discussed edge protection and the option of a simple 2x4 edge or other low barriers that can reduce the risk of wheels or feet slipping off the boardwalk; applicants agreed to consider such measures.

A natural resource protection plan and an expanded setback area to compensate for impacts were included in the application materials; staff said the package increases setback in other areas on the site to achieve roughly 1:1 compensation and that the conservation easement will be revised to include the updated delineation and mitigation area. The project team said construction was planned to begin in March and that the path and adjacent facilities were part of a school board–approved site plan.

A commissioner moved to recommend approval of the natural resource special exception for Franklin Public Schools for the properties at 8225, 8255, 8429 and 8459 West Forest Hill Avenue. The motion was seconded and passed by voice vote with no opposing votes.

The commission recommended that staff ensure conservation easement updates and consider edge protection measures on the boardwalk; the recommendation will go to the common council for final consideration where it will be considered alongside the site plan and conservation easement documentation.