Plan Commission approves 5-story, 93-unit mixed-use affordable housing at 4506–4514 Verona Road after contested hearing

The Madison Plan Commission voted unanimously June 23 to approve a conditional use permit for the construction of a five-story mixed-use building containing 93 apartments and 324 square feet of leasable commercial space at 4506–4514 Verona Road (Alder District 10).

Planning staff summarized the application and the record. Colin, the project planner, told commissioners the Comprehensive Plan’s future land-use designation for the site is “general commercial,” which typically favors large-format retail and can discourage residential uses adjacent to highways; staff initially raised concerns under conditional-use standards 1, 2 and 4 but published an addendum after the applicant supplied supplemental materials. “If the plan commission can find that all conditional use standards… can be found met given the additional information conveyed in… the applicant supplemental letters, staff recommend that the commission approve the conditional use request,” the staff memo said.

The applicant team presented a site plan and extensive supportive materials. Architect Kevin Burrow (Kenilworth & Bruce Architects) described the layout, which places a sheltered outdoor courtyard and a dedicated outdoor play area away from Verona Road; he said the building will include underground resident parking, a community service room and indoor play space. Development partner Kevin McDonald (Lincoln Avenue Communities) said the project is an Enterprise Green Communities Plus development, pursuing zero-energy-ready standards, Energy Star and enhanced indoor-air-quality measures including MERV 13 filtration and a UV catalyst filtration system. McDonald said the proposal had been awarded a WEDA funding award in the 2025 round and emphasized on-site supportive-service partnerships with Lutheran Social Services, Employment and Training Associates and the Dane County Veterans Service Office.

Supporters who spoke included the property owner Jean Armandariz, representatives from Lincoln Avenue Communities and allied service organizations, and neighborhood and social-service advocates. Robert Proctor of Lincoln Avenue Communities cited Wisconsin statute precedent and argued the record contains substantial evidence that the conditional-use standards are met, including traffic engineering findings and provided crash data. Leslie McAllister of the Allied Wellness Center described existing partnerships and on-site service delivery at other Lincoln developments. Several other supporters spoke about walkability, grocery access and proximity to parks and transit.

Opponents raised health, safety and traffic concerns. Tyler Balcon, an opponent, cited research on near-roadway air pollution and said he believed the site is within the EPA-defined near-roadway pollutant zone and that locating 100% affordable housing so close to heavy traffic could increase health risks for residents. Other speakers — including local residents and a neighborhood-association representative who asked for an updated traffic study — said they were worried about children crossing frontage roads at curved approaches and questioned whether the site’s tunnel and overpass provide safe pedestrian access for families.

Commissioners asked detailed questions of applicants and staff. Commissioners confirmed that traffic engineers had required a new marked crosswalk across the frontage road as a development condition and that Metro Traffic Engineering and Parks had provided comments reflected in staff’s addendum. The developer confirmed a planned community room available to residents; clarified the unit mix (45 one-bedroom, 23 two-bedroom and 25 three-bedroom units); and confirmed on-site supportive-service agreements, underground parking and a dedicated outdoor play area sized to accommodate typical playground equipment.

Alder Reguera moved to approve the conditional use, finding that standards 1, 2, 4 and 8 were satisfied given the supplemental materials and staff addendum. Commissioner Heck seconded the motion. After discussion, the commission recorded the motion as approved unanimously.

Key project details extracted from the record: - Address: 4506–4514 Verona Road (Alder District 10) - Proposal: Demolish two commercial buildings; construct a five-story mixed-use building containing 324 sq ft commercial space and 93 apartments (45 one-bed, 23 two-bed, 25 three-bed) - Site amenities: underground parking, sheltered central courtyard, indoor playroom and outdoor play area, community service room (approx. 324 sq ft), on-site supportive service agreements with Lutheran Social Services and others - Green building/air-quality measures referenced by applicant: Enterprise Green Communities Plus certification, Zero Energy Ready Homes approach, Energy Star, MERV 13 filtration, UV catalyst filtration system

What the decision means: The Plan Commission’s approval is the required advisory finding on conditional-use standards; the project will move forward to required building, demolition and other administrative reviews and any Council actions required for related items. The transcript shows substantial neighborhood engagement on this proposal and several follow-up issues (traffic-crossing details, monitoring of supportive services) that staff and the developer said they would address during permitting and implementation.