Dodge County Year 2030 Comprehensive Plan. Recommendations Report

Transcription

1 Dodge County Year 2030 Comprehensive Plan Contents 1. Issues and Opportunities Introduction Demographic Trends Summary Demographic Forecasts Summary Smart Growth Local Comprehensive Planning Goals Dodge County Comprehensive Plan Goals Issues and Opportunities Goals and Objectives Issues and Opportunities Policies and Recommendations Issues and Opportunities Programs Housing Introduction Housing Characteristics Summary and Trends Housing Unit Forecasts Summary Housing for All Income Levels Housing for All Age Groups and Persons with Special Needs Promoting the Availability of Land for Low and Moderate-Income Housing Maintaining and Rehabilitating the Existing Housing Stock Agriculture & Rural Housing Focus Group Summary Housing Goals and Objectives Housing Policies and Recommendations Housing Programs Transportation Introduction Existing Transportation System Summary Planned Transportation Improvements Highway Access Management Coordination with Existing Transportation Plans Transportation Goals and Objectives Transportation Policies and Recommendations Transportation Programs Utilities and Community Facilities Introduction Page i

2 4.2 Existing Utilities and Community Facilities Summary Expansion or Rehabilitation of Existing Utilities and Facilities Future Needs for Government Services Utilities and Community Facilities Goals and Objectives Utilities and Community Facilities Policies and Recommendations Utilities and Community Facilities Programs Agricultural, Natural and Cultural Resources Introduction Agricultural, Natural and Cultural Resources Summary and Trends Farmland and Agricultural Analysis Historical and Cultural Preservation Tools Agricultural, Natural and Cultural Resources Goals and Objectives Agricultural, Natural and Cultural Resources Policies and Recommendations Agricultural, Natural and Cultural Resources Programs Economic Development Introduction Dodge County Economic Summary and Trends Economic Development Focus Group Summary Agriculture Industry Analysis Desired Business and Industry Sites for Business and Industrial Development Economic Development Goals and Objectives Economic Development Policies and Recommendations Economic Development Programs Intergovernmental Cooperation Introduction Intergovernmental Cooperation Summary Analysis of the Relationship between Dodge County and Other Jurisdictions Intergovernmental Opportunities and Conflicts Relationship with State Agencies Boundary Issues & Intergovernmental Cooperation Focus Group Summary Intergovernmental Cooperation Goals and Objectives Intergovernmental Cooperation Policies and Recommendations Intergovernmental Cooperation Programs Land Use Introduction Existing Land Use Summary Projected Supply of and Demand for Land During the 20-Year Planning Period Future Land Use Plan Designation of Smart Growth Areas Land Use Goals and Objectives Land Use Policies and Recommendations ii

3 8.8 Land Use Programs Implementation Introduction Implementation Strategy Regulatory Land Use Management Tools Non-Regulatory Land Use Management Tools Planning Element Integration and Consistency Mechanism to Measure Progress Comprehensive Plan Amendments Comprehensive Plan Updates Implementation Goals and Objectives Implementation Policies and Recommendations Implementation Programs Tables Table 1-1: Population Estimates, Dodge County, Table 3-1: Dodge County Highway Setback Requirements Table 4-2: County Facilities & Services; Policies and Recommendations; Dodge County Table 7-1: Intergovernmental Opportunities; Dodge County Table 7-2: Intergovernmental Conflicts & Potential Resolutions; Dodge County Table 8-1: Existing Land Use, Dodge County, Table 8-2: Projected Land Use Demand (acres), Unincorporated Dodge County, Table 9-1: State of Wisconsin Authority Table 9-2: Dodge County Authority Table 9-3: City and Village Authority Table 9-4: Towns Under County Zoning Table 9-5: Towns Not Under County Zoning Figures Figure 1-3: Comparative Population Forecasts, Dodge County, Figure 2-1: Traditional vs. Conservation Design Lot Development Map 1-1 Map 1-2 Map 3-1 Map 3-2 Map 4-1 Map 4-2 Map 4-3 Map 4-4 Appendix A Regional Setting Multi-jurisdictional Plan Groupings Functional Classification of Highways, Railroads, and Airports Average Annual Daily Traffic Counts Emergency Service Areas (Fire) Emergency Service Areas (Emergency Medical Service) School District Boundaries Town, County, State and Federal Recreational Facilities iii

4 Map 4-5 Map 4-6 Map 4-7 Map 4-8 Map 5-1 Map 5-2 Map 5-3 Map 5-4 Map 5-5 Map 5-6 Map 5-7 Map 5-8 Map 7-1 Map 7-2 Map 8-1 Map 8-2 Map 8-3 Map 9-1 Map 9-2 Telephone Service Providers Electric Utilities and Cooperatives Natural Gas Facilities Public Sewer and Water Facilities Prime Agricultural Soils Dairy Farms Woodlots Wetlands Floodplains Watersheds, Streams, and Surface Water Environmental Corridors Historical, Cultural and Archaeological Resources Extraterritorial Jurisdiction in Dodge County Status of Planning in Dodge County Existing Land Use Farmland Preservation Participants Year 2030 Future Land Use Existing County Zoning Jurisdictions Existing Zoning Appendix B Utilities & Community Facilities Expansion & Rehabilitation Timetable Summary; Multi- Jurisdictional Planning Municipalities; Dodge County Appendix C Dodge County Capital Improvements Program iv

5 1. Issues and Opportunities 1.1 Introduction Planning for Dodge County s future begins with a basic understanding of the County s demographic characteristics, trends, and forecasts. While the Issues and Opportunities element in the Inventory & Trends Report provides a detailed inventory and analysis of the County s population trends and forecasts, age distribution, education levels, and employment and income characteristics, this element in the provides an overview of the County s population trends and forecasts through the Year In addition, this element contains a statement of the overall goals, objectives, policies, recommendations and programs that will be used to guide the future use and development of land within the unincorporated areas of the County over a 20-year planning period. 1.2 Demographic Trends Summary In 2004, Dodge County s population was estimated to be 88,285 persons; a 2.8 percent increase from the 2000 Census count of 85,897 and a 12.2 percent increase from the 1990 Census count of 76,559 persons. This increase is slightly higher than the 9.6 percent increase in population for the state of Wisconsin. A summary of 2004 population estimates for Dodge County and each municipality is presented in Table 1-1. When compared to other counties in the region, Dodge County has experienced a moderate rate of growth since Counties located both north and south of Dodge County (i.e. Fond du Lac, Green Lake, and Jefferson County) experienced a growth rate less than 10 percent while those counties to the west and east (i.e. Columbia and Washington County) experienced a growth rate greater than 16 percent over the same 10-year period from 1990 to Dodge County Key Demographic Trends and Forecasts From 1990 to 2004, the County s population has increased 15.3 percent to 88,285 persons 62 percent of the County s population lives in villages/cities with 38 percent living in the unincorporated towns Dodge County s projected population growth for the next 20 years ranges from 14 percent to 34 percent (98,215 to 115,521 persons in 2030) Median age in Dodge County (37 years) increased 2 years from 1990 to 2000 Median Dodge County household income in 2000 was $45,190 (vs. the State s median income of $43,791) 1-1

6 Over time, the distribution of the County s total population living in unincorporated towns vs. incorporated villages and cities has remained relatively constant. From 1970 to 2000 the percentage of County residents living in the unincorporated towns has decreased from 40 to 38 percent and increased slightly from 40 to 42 percent for those living in villages and cities. Table 1-1: Population Estimates, Dodge County, # C h a n ge % C h an ge C en su s E stim a te T. A sh ip p u n 2, , % T. B ea ver D am 3, , % T. B u rn e tt % T. C ala m u s 1, , % T. C h ester % T. C lym an % T. E lb a 1, , % T. E m m e t 1, , % T. F o x L ake 2, , % T. H erm a n 1, , % T. H u bb a rd 1, , % T. H u stisfo rd 1, , % T. L e b an o n 1, , % T. L e ro y 1, , % T. L o m ira 1, , % T. L o w ell 1, , % T. O ak G ro ve 1, , % T. P o rtlan d 1, , % T. R u b ico n 2, , % T. S h ield s % T. T h e resa 1, , % T. T ren to n 1, , % T. W estfo rd 1, , % T. W illiam stow n % V. B ro w n sv ille % V. C lym an % V. H u stisfo rd 1, , % V. Iro n R id ge , % V. K eko skee % V. L o m ira 2, , % V. L o w ell % V. N eo sh o % V. R a nd o lp h * 1, , % V. R e eseville % V. T h e re sa 1, , % C. B eav er D a m 1 5, , % C. C o lu m b u s* % C. F o x L ake 1, , % C. H a rtfo rd * % C. H o ric o n 3, , % C. Junea u 2, , % C. M ayville 4, , % C. W a te rto w n * 8, , % C. W a u p u n * 7, , % D o dg e C o u n ty 8 5, , , % W isc o n sin 5,3 6 3, ,5 3 2, , % Source: U.S. Bureau of the Census, Wisconsin Department of Administration, Demographic Services Center, Official Population Estimates,

7 Overall, Dodge County s population is aging along with the rest of the region, state and country. The median age of persons living in Dodge County has increase from 35 years in 1990 to 37 years in The median household income for Dodge County in 2000 was $45,190, slightly higher than the State s reported median income of $43,791. Approximately 82.3 percent of persons in Dodge County age 25 and older have attained a high school diploma or had some post-secondary education compared to 85.1 percent for the entire state of Wisconsin. 1.3 Demographic Forecasts Summary Dodge County s population is expected to continue to increase slowly over the 20-year planning period. The majority of communities within the county have been experiencing moderate population growth. However, there are no major trends or indicators that would indicate that population will experience a dramatic increase or decrease over the planning period. It is anticipated that the increase in population of older age groups within the county will continue during the planning period. Figure 1-1 presents a comparative summary of three population forecasts that have been prepared for Dodge County through the 20-year planning period. Figure 1-3: Comparative Population Forecasts, Dodge County, , ,000 Population 80,000 60,000 40,000 20, Census 85,897 WDOA Forecast 90,565 92,842 94,882 96,828 98,215 Linear Forecast 89,675 92,283 94,892 98, ,109 Census/Estimate Forecast 94,114 99, , , ,521 Source: U.S. Bureau of the Census, Wisconsin Department of Administration, Demographics Services Center, Population Projections for Wisconsin Communities: and 2003 population estimate, Foth & Van Dyke. Dodge County Planning, Development and Parks Department. 1-3

8 As presented in Figure 1-1, Dodge County s population is forecast to increase at a low to moderate rate of growth. By 2030, the County s population is projected to increase to a range from 98,215 (+14.3 percent) to 115,521 (+34.5 percent). The reliability of these population forecasts depends on the continuation of the County s past growth trends. Actual population levels through 2030 will also depend on market conditions, local attitudes toward growth and development as expressed through local comprehensive plans, environmental concerns, land use and zoning restrictions, taxation, annexation, and other political policies that influence business and personal location decisions. 1.4 Smart Growth Local Comprehensive Planning Goals Wisconsin s Smart Growth comprehensive planning legislation establishes fourteen (14) comprehensive planning goals to coordinate land use statewide via coordinated planning efforts between any governmental agencies that affect land use. The 14 comprehensive planning goals act as mandates to ensure a coordinated and extensive planning effort. The 14 comprehensive planning goals are listed here for reference: 1. Promote the redevelopment of lands with existing infrastructure and public services and the maintenance and rehabilitation of existing residential, commercial and industrial structures. 2. Encourage neighborhood designs that support a range of transportation choices. 3. Protect natural areas, including wetlands, wildlife habitats, lakes and woodlands, open spaces and groundwater resources. 4. Protect economically productive areas, including farmland and forests. 5. Encourage land uses, densities and regulations that promote efficient development patterns and relatively low municipal, state government and utility costs. 6. Preserve cultural, historic and archaeological sites. 7. Encourage coordination and cooperation among nearby units of government. 8. Build community identity by revitalizing main streets and enforcing design standards. 9. Provide an adequate supply of affordable housing for all income levels throughout each community. 10. Provide adequate infrastructure and public services and a supply of developable land to meet existing and future market demand for residential, commercial and industrial uses. 11. Promote the expansion or stabilization of the current economic base and the creation of a 1-4

9 range of employment opportunities at the state, regional and local levels. 12. Balance individual property rights with community interests and goals. 13. Plan and develop land uses that create or preserve varied and unique urban and rural communities. 14. Provide an integrated, efficient and economical transportation system that provides mobility, convenience and safety which meets the needs of all citizens including transitdependent and disabled. 1.5 Dodge County Comprehensive Plan Goals Each element of the comprehensive plan includes a specific set of goals, objectives, policies, and recommendations that the County will use as a guide to future land use, development and preservation decisions over the next 20 years. Goals, objectives, policies and recommendations are defined as follows: Goals are broad, value-based statements that express general public priorities and preferences about how the County should address issues over the next 20 years and beyond. Goals address key issues, opportunities and problems that affect the county. Objectives are more specific than goals and are measurable statements usually attainable through direct action and implementation of plan recommendations. The accomplishment of objectives contributes to the fulfillment of the goal. Policies are general rules, principles, strategies or courses of action used to guide decision making and actions as necessary to accomplish goals and objectives. Policies are intended to be used by decision-makers on a regular basis. Recommendations are specific actions, projects or activities that are intended to achieve a particular plan goal, objective, or policy. This section contains all of the goals for each of the nine elements of the comprehensive plan as required by Wisconsin s smart growth comprehensive planning legislation. The following sources were used as the basis for developing the goals and objectives for the : Dodge County Comprehensive Plan (1999) Dodge County Agricultural Preservation Plan (2002) Dodge County Park, Outdoor Recreation & Open Space Plan (2003) Various Local Community 2030 Comprehensive Plans Dodge County 2030 Comprehensive Plan Focus Groups Planning, Development & Parks Department Staff 1-5

10 In addition, selected goals and objectives having countywide application were taken from the comprehensive plans for a number of the local communities participating in the Dodge County multi-jurisdictional planning process. Issues and Opportunities Goals Wisconsin Statutes requires a statement of overall goals, objectives, policies, and programs of the local governmental unit to guide the future development and redevelopment of the local governmental unit over a 20-year planning period. Goal: Protect, preserve and enhance the County s rural atmosphere, natural resources and open spaces, and protect the County s overall sense of community and quality of life. Goal: New development occurring in a well planned, sustainable, aesthetically and architecturally pleasing manner. Goal: A balance between the appropriate land use regulation and the rights of the property owners focusing on the best interests of the community as a whole. Goal: A well-informed citizenry concerning planning and development issues with ample opportunity for citizen participation. Housing Goals Wisconsin Statutes requires a compilation of goals, objectives, policies, maps and programs of the local governmental unit to provide an adequate housing supply that meets existing and forecasted housing demand in the local governmental unit. Goal: Allow opportunities for an adequate housing supply that will meet the needs of existing and future residents and provide a range of housing choices including all income levels, age groups, and special housing needs while maintaining the current housing stock. Goal: Provide for housing development that maintains the characteristics of Dodge County. Goal: Maintain and encourage rehabilitation of Dodge County s existing housing stock. Transportation Goals Wisconsin Statutes , the transportation element will provide a compilation of goals, objectives, policies, maps and programs to guide the future development of the various modes of transportation, including highways, transit, and transportation systems for persons with disabilities, bicycles, walking, railroads, air transportation, trucking and water transportation. The element shall compare the local governmental unit s objectives, policies, goals and programs to state and regional transportation plans. 1-6

11 Goal: A safe and well-maintained transportation network. Goal: Support a transportation system which, through its location, capacity, and design, will effectively serve the existing land use development pattern and meet anticipated transportation demand generated by existing and planned land uses. Utilities and Community Facilities Goals Wisconsin Statutes requires a compilation of goals, objectives, policies, maps and programs to guide the future development of utilities and community facilities in the local governmental unit. General Goal: Provide a full range of quality, efficient and cost-effective community facilities and services that meet the existing and future demands of residents, land owners, and visitors. Goal: Support the provision of needed public facilities in an economic and efficient manner that accommodates planned growth without adversely affecting farmland or farm operations. Stormwater Management Goal: Promote stormwater management practices which reduce property and road damage and ensure a high level of water quality. Water Supply Goal: Protect the quality and quantity of the county s ground and surface water features. Goal: Ensure that the water supply for Dodge County has sufficient capacity, remains drinkable and is available to meet the needs of current and future residents. Private Onsite Wastewater Treatment Systems (POWTS) and Sanitary Sewer Goal: Ensure proper disposal of private onsite wastewater to ensure public health and protect ground and surface water quality. Solid Waste Disposal and Recycling Facilities Goal: Promote effective solid waste disposal and recycling services and systems that protect the public health, natural environment, and general appearance of land use within Dodge County. Parks and Outdoor Recreation Goal: A high quality network of park and recreational lands with safe and accessible facilities meeting the needs and demands of the residents of Dodge County and its visitors. Goal: Provide adequate facilities so that a quality recreation experience may be enjoyed by all. 1-7

12 Goal: Provide a planned system of parks and recreation areas that offer a diversity of recreational opportunities. Utilities and Communication Services Goal: Ensure the provision of reliable, efficient, and well-planned utilities (i.e. gas, electric) and communication services (i.e. telephone, cable, telecommunications) to adequately serve existing and future development. Libraries and Schools Goal: Promote quality schools and access to educational opportunities for everyone. Police, Fire, and Emergency Medical Services and Facilities Goal: Ensure a level of police, fire and emergency medical services that meets existing and future demands of residents and development patterns. Government Facilities Goal: Maintain the quality of all Dodge County facilities. Health and Child Care Services and Facilities Goal: Ensure that Dodge County residents have reasonable access to health care facilities and child care. Agricultural, Natural and Cultural Resources Goals Wisconsin Statutes ; a compilation of goals, objectives, policies, maps and programs for the conservation, and promotion of the effective management, of natural resources such as groundwater, forests, productive agricultural areas, environmentally sensitive areas, threatened and endangered species, stream corridors, surface water, floodplains, wetlands, wildlife habitat, metallic and nonmetallic mineral resources, parks, open spaces, historical and cultural resources, community design, recreational resources and other natural resources. Goal: Protect and preserve the County s best agricultural farm land. Goal: Protect, preserve and enhance the County s natural, historical and cultural resources. Economic Development Goals Wisconsin Statutes requires a compilation of goals, objectives, policies, maps and programs to promote the stabilization, retention or expansion, of the economic base and quality employment opportunities in the local governmental unit. Goal: Balanced land uses within all communities of Dodge County and enhancement of the urban areas necessary to sustain the economic stability of the County. 1-8

13 Goal: Maintain, enhance, and continue to diversify the economy consistent with other county goals and objectives in order to provide a stable economic base. Goal: Enhance the quality of employment opportunities. Goal: Identify the productive farmlands in Dodge County and support their preservation and management as an important economic resource. Intergovernmental Cooperation Goals Wisconsin Statutes ; A compilation of goals, objectives, policies, maps and programs for joint planning and decision making with other jurisdictions, including school districts and adjacent local governmental units, for siting and building public facilities and sharing public services. Goal: Intergovernmental cooperation among the county, cities, villages and towns. Goal: Establish mutually beneficial intergovernmental relations with other units of government. Goal: Coordinate and communicate planning activities with other communities in the county, and state and federal agencies to realize individual and shared visions, goals, and objectives; to address regional issues that cross political boundaries and jurisdictions; to ensure efficient use of resources; and to provide for increased certainty between all levels of government, developers, and landowners. Goal: Seek opportunities to enhance the provision of coordinated public services and facilities such as police, fire, emergency rescue, waste management, transportation systems (e.g., roads, bike/pedestrian routes, transit, parks, and recreation with other units of government. Land Use Goals Wisconsin Statutes ; A compilation of goals, objectives, policies, maps and programs to guide the future development and redevelopment of public and private property. Goal: Provide for a well-balanced mix of land uses within the County that minimizes potential conflicts between residential, commercial, industrial and agricultural land uses. Goal: Provide for urban and rural growth in an orderly manner that does not unnecessarily consume farmland or create conflicts with farm operations. Implementation Goals Wisconsin Statutes ; A compilation of programs and specific actions to be completed in a stated sequence, including proposed changes to any applicable zoning ordinances, official 1-9

14 maps, sign regulations, erosion and storm water control ordinances, historic preservation ordinances, site plan regulations, design review ordinances, building codes, mechanical codes, housing codes, sanitary codes or subdivision ordinances, to implement the objectives, policies, plans and programs contained in the other elements. Goal: Consistency between and integration of the comprehensive plan goals, objectives, policies and recommendations into County ordinances, regulations, programs, and activities. Goal: Coordinate the development of future land use, development and preservation regulations and programs with the residents, land owners, local municipalities, and the County Board. 1.6 Issues and Opportunities Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Issues and Opportunities element. Goal: Maintenance, preservation and enhancement of the County s rural atmosphere, natural resources and open spaces, and protect the County s overall sense of community. Goal: New development occurring in a well planned, sustainable, aesthetically and architecturally pleasing manner. Goal: A balance between the appropriate land use regulation and the rights of the property owners focusing on the best interests of the community as a whole. Goal: A well-informed citizenry concerning planning and development issues with ample opportunity for citizen participation. Objectives: 1. Develop a zoning and development review process that objectively examines the quality of the proposed development and the potential long-term positive and negative impacts on the community and the County. 2. Select appropriate land use patterns which protect and restore natural resources and open spaces, and protect the County s overall sense of community. 3. Preserve the majority of rural areas including prime agricultural lands, on which nonfarm development would be discouraged, by focusing new areas of growth close or adjacent to existing areas of development and community services. 1-10

15 4. Plan for growth within areas of the County where growth impacts are appropriate and expected. These impacts can include the addition of municipal services necessary to support the growth, changes to local character, and impacts on transportation systems and school systems. 5. Assist local communities in the development of a local review process for planning and zoning related issues including the establishment of local plan committees. 6. Balance local and county roles and responsibilities for growth management, planning, implementation and monitoring. 7. Explore regional planning with surrounding counties. 8. Encourage citizen participation and input in the decision-making process for new development and parks. 9. Establish a formal communication system to involve citizens in the planning process. 10. Maintain a positive relationship with local news media to create greater public awareness of planning related matters. 11. Improve cooperation efforts with local government to establish a mutually beneficial decision-making procedure that integrates and is consistent with the county s comprehensive plan. 12. Improve cooperation efforts with local government to ensure coordinated decisionmaking and the reduction of incompatible land uses. 13. Create opportunities for citizen participation throughout all stages of planning, ordinance development and policy implementation. 14. Establish a development review process whereby all interested parties are afforded an opportunity to influence the outcome. 15. Maintain right-to-farm value to support a thriving agricultural industry. 1.7 Issues and Opportunities Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. 1-11

16 Recommendations are specific actions or projects that the county should be prepared to complete within the 20-year planning period. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. The Planning, Development and Parks Department should assist communities to develop land use plans and provide information on land use issues at regularly scheduled meetings with all interested municipalities. 2. The Planning, Development and Parks Department should prepare community land use plans and ordinances on request on a cost basis. 3. The comprehensive plan shall be utilized as a tool to guide decision-making in accordance with state statutes. 4. The Planning, Development and Parks Committee should establish a development review process that objectively examines the type, location, and quality of the proposed development, and potential long-term impacts on the County. 5. Public participation shall be required as part of the development and/or amendment to any County plan, ordinances, or programs. 6. The current rural and agricultural nature of the County should be maintained to the maximum extent possible, particularly by having single family residences as the primary source of housing. Recommendations: 1. Strengthen the right-to-farm provisions in the Land Use Code. 2. Establish focal points which include historic and cultural locations, such as parks, schools, downtowns, libraries, etc. which are identified as gathering locations throughout the County. 3. Establish a system that encourages towns, villages and cities to comment on plan amendments, code revisions and development proposals before the proposals are acted upon, and encourage municipalities to offer the same opportunity to the County. 4. Maintain a revolving loan fund to be used to assist municipalities with high priority economic development projects on request. 1-12

17 1.8 Issues and Opportunities Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Issues & Opportunities Element of the. AB608, Wisconsin Act 233 Clarification of Smart Growth Law This bill was signed into law in April This new law reduces the number of programs or actions with which a comprehensive plan must be consistent. Under the new legislation, the only actions which must be consistent with a comprehensive plan are official mapping, local subdivision regulation, and zoning ordinances, including zoning of shorelands or wetlands in shorelands. The bill also reiterates that a Regional Planning Commission s comprehensive plan is only advisory in its applicability to a political subdivision (a city, village, town, or county), and a political subdivision s comprehensive plan. Wisconsin Department of Administration, Demographic Services Center The Demographic Services Center primary responsibility is to develop annual total population estimates for all Wisconsin counties, towns, villages, and cities. It also makes annual estimates of the voting age population for all municipalities and total population estimates for Zip Code Areas. In addition, the Demographic Services Center develops population projections by age and sex for the counties, population projections of total population for all municipalities, and estimates of total housing units and households for all counties. For further information on the Service Center contact the WDOA or visit its web-site at Wisconsin Department of Administration, Division of Intergovernmental Relations The Division of Intergovernmental Relations coordinates and provides information with regard to Wisconsin s comprehensive planning statute. The division also administers the grant program that assists local governments in developing comprehensive plans. For further information on the division and their programs contact the WDOA or visit their web-site at Their website contains a variety of information including fact sheets, grant information, model ordinances, guides for developing the elements of comprehensive plans, and links to a variety of other sources of information for comprehensive planning. 1-13

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19 2. Housing 2.1 Introduction Planning for Dodge County s future begins with a basic understanding of the County s housing characteristics, trends, and forecasts. While the Housing element in the Inventory & Trends Report provides a detailed inventory and analysis of the County s existing housing supply, housing type, age and value of the housing stock, occupancy rates, household size, and forecasts, this element in the provides a summary of the County s housing characteristics and forecasts through the Year In addition, this element contains a statement of specific goals, objectives, policies, recommendations and programs related to housing that will be used to guide the future use and development of land within the unincorporated areas of the County over a 20-year planning period. 2.2 Housing Characteristics Summary and Trends In the Year 2000, Dodge County had a total of 33,672 housing units, a 17.2 percent increase from This increase was greater than that for the state of Wisconsin, which had a lower housing unit increase of only 12.9 percent. The majority of municipalities in the county had housing unit increases of greater than 15 percent from 1990 to A detailed summary of the supply of total housing units in 2004 in Dodge County and in each municipality is presented in Table 2-1 of the Inventory & Trends Report. The distribution of housing in the unincorporated towns vs. incorporated villages and cities in the County has remained relatively constant. Since 1990, the percentage of housing units in the unincorporated towns has decreased slightly from 38 to 37 percent in 2000 (and increased slightly from 62 to 63 percent located in the villages and cities). In 2000, approximately 93 percent of all units were occupied (7 percent vacant and 2.5 percent seasonal units) with 74 percent of all Dodge County Key Housing Trends and Forecasts Dodge County s housing supply increased 17.2 percent from 1990 to 2000 to a total of 33,672 dwelling housing units 63 percent of the County s housing units are located in villages/cities with 37 percent located in the unincorporated towns Dodge County s projected housing unit growth for the next 20 years ranges from 34 percent to 44 percent (45,125 to 48,578 housing units in 2030) The average household size in Dodge County has decreased from 2.7 persons in 1990 to 2.5 persons in 2000 and is projected to be 2.35 persons by 2030 Median age of the housing units in Dodge County was 45 years in

20 occupied units occupied by their respective owners and 26 percent occupied by renters. The majority of housing units in the County are single-family detached structures (71 percent) with a smaller percentage of units in multi-family structures (24 percent) and mobile homes (5 percent). The average size of a household in Dodge County has decreased from 2.71 persons/household in 1990 to 2.56 persons/household in Like Dodge County, household sizes throughout the nation and Wisconsin have been on the decline for many years. In general, families are not having as many children as in the past, and the aging of the baby boom population is contributing to this trend. In the Year 2000, the median year in which structures were built in the county was 1960 (having a median age of 45 years) while a majority of all housing units, 51 percent, were built in 1959 or earlier. Due to the number of historical areas and settlement history of Dodge County, these characteristics can be expected. The median year that structures were built in Dodge County is not significantly older than the median year for Wisconsin overall (1965). The median value of all housing units in Dodge County was $105,800; less than the $112,200 median value of housing units for all of Wisconsin. Further details regarding housing characteristics and trends in Dodge County are provided in the Inventory and Trends Report. Benefits of Planning for Housing Demographics and housing are very interrelated with regard to planning for the future. While a community can have limited influence over its demographics it can have significant influence on housing in the community. There are therefore several benefits of planning for housing, including the following: The process encourages citizens to start thinking and talking about local housing concerns. The data collection and analysis can increase understanding of the local housing situation. A community can gain more control over the nature of future housing development. It increases the chances that housing decisions are coordinated with decisions regarding other comprehensive planning elements such as land use, transportation, economic development, utilities and community facilities, and agriculture, natural, and cultural resources. It can bring together a diverse range of groups, agencies, and citizens that otherwise may not work together. It provides the chance to consider the community s housing concerns in relation to those of adjacent communities. 2-2

21 If certain types of housing are in short supply, the element may encourage housing development which may in turn be important for recruiting and retaining businesses. By planning for housing, there is a much greater likelihood that housing development will meet a broad range of needs. 2.3 Housing Unit Forecasts Summary Dodge County s population is expected to continue to increase at a moderate rate of growth over the 20-year planning period. By 2030, the number of housing units in Dodge County is projected to increase from a total of 33,672 in 2000 to a range of 45,125 (+34 percent) to 48,578 (+44 percent). 2.4 Housing for All Income Levels The right to affordable, safe, and accessible housing is a key to preventing a wide range of financial problems that affect low-income households. Safe, affordable housing provides: a more healthy environment, leading to less medical costs; gives low-income households, through their ownership, a stake in the neighborhood and their community; allows low-income households to build assets and invest in their future; and provides a more positive environment for a family, leading to increased opportunities in education and personal development. According to the U.S. Department of Housing and Urban Development, homeowners who pay over 30 percent of their gross income for housing costs (i.e. principal, interest, taxes, and insurance) are considered to be financially burdened with their housing considered unaffordable. Approximately 18.5 percent of the households in Dodge County paid 30 percent or more of their 1999 income for monthly housing costs. For the State of Wisconsin, approximately 17.8 percent of households paid 30 percent or more of their income in monthly housing costs. Approximately 34 percent of households paid less than 15 percent of their 1999 household income to monthly housing costs in Dodge County. Approximately 23.5 percent of renters paid 30 percent or more of their household income in gross rent. Nonetheless, discussions with the Dodge County Housing Authority and communities within the county indicate that there does not appear to be a lack of affordable housing or rental housing within the county. The primary issues involved providing quality affordable housing. Many of the homes for sale or homes that would be considered affordable are in need of rehabilitation. 2.5 Housing for All Age Groups and Persons with Special Needs An increasing number of people can not find housing in their community that is suitable for their stage in life. This requires local governments and the county to pursue strategies that encourage the development of a range of housing choices. As the general population ages, affordability, security, accessibility, proximity to services, transportation, food, and medical facilities will all become increasingly important when making housing decisions. 2-3

22 The Wisconsin Housing and Economic Development Authority (WHEDA) maintains a list of federally assisted rental housing available in each county in the state. According to this inventory, there are a total of 22 separate housing developments in Dodge County with a total of 973 total housing units that provide/receive federally financial assistance. Of these 973 units, 859 are for the elderly, 103 of the units are for family and 11 are for those with special needs. According to the Dodge County Housing Authority, the housing market is currently meeting the demand for elderly housing. In rural areas this type of housing may not be as accessible, but communities within various areas of the county are providing for the demand. It is anticipated that the demand for assisted living facilities, minimal care and supervision, will increase over time. The only county owned community based residential facility within the county is the Greenwood Home. 2.6 Promoting the Availability of Land for Low and Moderate-Income Housing Communities should promote the availability of undeveloped or under-utilized land as one way to meet the low and moderate-income housing needs of residents. For example, communities should insure an adequate supply of land is planned and zoned for multi-family housing and for development at higher densities to meet forecasted demand. The land use element of this plan and the future land use map should be utilized when considering future growth areas for the promotion of undeveloped or under-utilized land for housing development. Encouraging growth to planned growth areas will also reduce the overall costs to residents since infrastructure, such as roads, will already be in place. One strategy to promoting the development of affordable housing within Dodge County is to encourage infill development. Infill development is the process of developing vacant or underused parcels within existing urban or developed areas. Infill development contributes to a more compact form of development which is less consumptive of land and resources. Many developers are bypassing vacant urban area land for less expensive land beyond cities or villages edges. A pattern of lower-density development at the urban fringe consumes land (including farmlands, wetlands, and other resource lands) at a much faster rate than population growth. Infill housing development promotes utilization of existing community facilities and services, conservation of environmental resources, compact transportation patterns and overall lower cost housing development. Another strategy to development affordable housing is conservation design or cluster development. A cluster development generally sites houses on smaller parcels of land, while the additional land that would have been allocated to individual lots is converted to common shared open space for the residents. Typically, road frontage, lot size, setbacks, and other traditional regulations are redefined to permit the developer to preserve ecologically sensitive areas, historical sites, or other unique characteristics of the land being subdivided. Figure 2-1 depicts potential development of the same 160 acre property under two different development scenarios: (1) a traditional pattern of land development where all of the land is 2-4

23 divided into home sites with the housing units scattered across the entire area; and (2) a clustered development pattern where the home sites are grouped in one area of the land. Figure 2-1: Traditional vs. Conservation Design Lot Development Cluster housing in rural areas can maintain the rural character of the area. It can also provide open space for community members, provide a sense of community, and preserve critical land qualities. Another advantage is that developers often experience cheaper site development costs involving the construction of roads and water/sewer infrastructure. These reduced costs often offset the costs of restoration or development of amenities such as trails in the open space areas. Other advantages include meeting a market need for low-maintenance housing and greatly reducing the impacts of development on watersheds. 2.7 Maintaining and Rehabilitating the Existing Housing Stock It is important that any housing planning consider conservation of the existing housing stock. The existing housing stock is often the primary source of affordable housing within a community. In many communities in Dodge County the existing stock is aging and is in need investment to maintain its utility. Many of these older homes may also be considered historic or locally significant and therefore contributing to the overall atmosphere and culture of the community. Communities should consider strategies that prevent neglect and encourage reinvestment in the existing housing stock. 2.8 Agriculture & Rural Housing Focus Group Summary The Dodge County Advisory Committee (CAC) selected agriculture and rural housing as one of the three (3) main topics they felt needed particular attention and consideration during the 2-5

24 comprehensive planning process. On July 13, 2004, a panel of representatives from various state, county, and local agencies, elected officials, and other qualified experts was assembled to share and discuss their own thoughts, ideas, and experiences regarding agriculture and rural housing. The following panelists participated in the Agriculture and Rural Housing Focus Group meeting: David Cramer, United Cooperative; Bob Topel, Town of Portland; Paul Benjamin, Farmland Preservation Program; Dan Short, U.W. Extension Livestock Agent; Marc Bethke, County Land Conservation Department; Tina Swain, Dodge County Board of Realtors. As a result of their discussion, it was generally agreed between the panelists and members of the public that the County and local municipalities should try to limit new residential development and reduce the loss of productive farm land by: implementing conservation or cluster subdivision development increase restrictions in areas zoned for agricultural uses increase enforcement of existing plans and policies that promote farm land preservation It was also agreed that the protection of existing farm operations on large tracts of undeveloped land should have the highest priority for protection, while future housing in the rural, unincorporated areas should be directed toward those rural areas that have already been developed. It was generally agreed that new development in the rural areas should include: industries that serve and support the agricultural region residential development that is compatible with existing agricultural operations new development adjacent to existing urban areas If any, conditions under which the sale of land for new non-farm development in the rural areas could be found acceptable include: the status of use-value assessments; length of ownership; relative location to existing urban areas. With regard to new residential development in the rural areas, it was agreed that the following factors should be considered: 2-6

25 stringent deed restrictions and mutual agreements between non-farm residents and existing farm operators to protect their right to farm the provision and maintenance of buffers between farm and non-farm uses the ability to provide adequate public and emergency services to new non-farm development 2.9 Housing Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Housing element. Goal: Allow opportunities for an adequate housing supply that will meet the needs of existing and future residents and provide a range of housing choices including all income levels, age groups, and special housing needs while maintaining the current housing stock. Goal: Provide for housing development that maintains the characteristics of Dodge County. Goal: Maintain and encourage rehabilitation of Dodge County s existing housing stock. Goal: Allow opportunities for an adequate housing supply that will meet the needs of future residents and provide a range of housing choices including all income levels, age groups, and special housing needs while maintaining the current housing stock. Objectives: 1. Encourage the use of cluster design for rural residential development in those rural areas suitable for limited residential development to minimize impacts on farming areas. 2. Plan for the housing needs of an aging population including small apartments, assisted living facilities and condominiums. 3. Promote an adequate supply of appropriate housing for all those who work in Dodge County. 4. Promote all types of residential development including multi-family, affordable housing and group living quarters in proportion to the demand for such housing. 5. Encourage multi-family and group housing to locate in urban area where public utilities will be available. 2-7

26 2.10 Housing Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. New non-farm residential development in areas not served by central water/sewer systems should be directed away from existing agricultural operations on large tracts of undeveloped land and directed toward those areas that have existing non-farm development. 2. New non-farm residential development should only be allowed in areas not served by central water/sewer if such development is subject to a nuisance disclaimer, stringent deed restrictions or other mutual agreement intended to protect the rightto-farm of existing and future agricultural operations. 3. The County should discourage the development of major subdivisions (defined as five or more lots) unless served by public sanitary sewer service. 4. Infill development and new development shall be encouraged within areas served by public sanitary sewer. 5. New housing units in areas designated for agriculture should be designed to reduce the impact to natural vegetation, preserve quality farmland, reduce farmland fragmentation, reduce conflict with existing agricultural operations, preserve drainage patterns, and not block potential road extensions. 6. Cluster residential development will be promoted to minimize land use impacts while accommodating development and green space. 7. Any multi-family residential development that abuts established low-density residential areas should be very carefully designed and buffered to minimize potential negative impacts on existing homes. 8. Development of new housing should be consistent with the goals, objectives, and densities established in the local governmental units comprehensive plan. 2-8

27 Recommendations: 1. Amend the County zoning map in accordance with the Comprehensive Plan Future Land Use Map. 2. Seek a developer to build an assisted living facility. 3. Discourage the construction of housing near heavily traveled highways where traffic noise may become a concern. 4. Remove the subdivision incentive provision from the County Land Use Code Housing Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Housing Element of the. Federal-National Programs Department of Housing and Urban Development (HUD) Federal agency with primary responsibility for housing programs and community development. Main repository of resources for housing programs in Wisconsin. Provides funding for state developed programs through HOME and other initiatives. It also funds the Continuum of Care for Homeless Families initiative, and provides Section 8 vouchers, which assist low-income families in finding affordable housing. The Wisconsin HUD office is located in Milwaukee. USDA, Wisconsin Rural Development, Rural Housing Service The mission of the Rural Housing Service is to enhance the quality of life of rural people through the creation of safe, affordable, housing where people can live, work, and prosper as part of a community. The Wisconsin Rural Housing Service offers housing preservation grants, loans and grants for farm labor housing, loans and grants for home improvement and repair, loans for financing housing site development, loans for home purchase or construction, loans on apartment buildings, and self-help technical assistance grants. Funding is available for families and individuals, non-profits, local governments, and public agencies such as housing authorities. For further information visit the website at or contact the Wisconsin USDA Rural Development office. Habitat for Humanity The goal of this program is to eliminate inadequate housing and poverty housing throughout the world. Local affiliates, including dozens in Wisconsin, are responsible for raising funds, recruiting volunteers, identifying project sites, and constructing owner-occupied housing for the benefit of participating low-income families. Visit 2-9

28 State Programs Wisconsin Department of Commerce, Bureau of Housing The Bureau of Housing (BOH) helps expand local affordable housing and supports services to people without housing. The fifteen federal and state programs, managed by the Bureau, aid elderly persons, people with disabilities, low and moderate income residents, and the homeless population. The Bureau works closely with local governments and non-profit housing organizations to deliver financial and technical housing assistance and to strengthen the capabilities of housing organizations. For further information on the Bureau and the services they offer visit the Department of Commerce website at: Historic Home Owner s Tax Credits A 25 percent Wisconsin investment tax credit is available for people who rehabilitate historic non-income-producing, personal residences, and who apply for and receive project approval before beginning physical work on their projects. For more information contact the Wisconsin Historical Society. Tomorrow s Home Foundation A non-profit organization started by the Wisconsin Manufactured Housing Association seeks funding by the DNR through the Solid Waste Reduction Grant to remove abandoned and unwanted mobile homes throughout Wisconsin. A scoring system and qualifications have been established due to high demand for services. For more information visit the Wisconsin Manufactured Housing Association website or contact Tomorrow s Home Foundation at (608) The Partnership for Homeownership This is a program where WHEDA and the U.S. Department of Agriculture Rural Development have combined their resources to make home ownership more affordable for residents in Wisconsin rural areas. Through this program an eligible borrower receives a mortgage with a rate at or below the market and a mortgage from Rural Development with an interest rate based on ability to pay. This program is targeted to low income homebuyers. The program will be offered to rural areas served by USDA-Rural Development. More information can be found by contacting the local Rural Development office or by calling WHEDA. Community Development Block Grant (CDBG) Housing Program The Wisconsin Community Development Block Grant (CDBG) program for housing, administered by the Wisconsin Department of Commerce, provides grants to general purpose units of local government for housing programs which principally benefit low- and moderateincome (LMI) households. The CDBG program is a federally funded program through the Department of Housing and Urban Development s Small Cities CDBG Program. CDBG funds can be used for various housing and neighborhood revitalization activities including housing rehabilitation, acquisition, relocation, demolition of dilapidated structures, and handicap accessibility improvements. The maximum grant to an applicant is $500,000. Approximately 15 communities are awarded funds yearly in Wisconsin. For more information on this program contact the Wisconsin Department of Commerce, Bureau of Housing. 2-10

29 Wisconsin Front Door Housing Wisconsin Front Door Housing is a web-based community service that is intended to better connect providers of housing and housing services to renters who are looking for these types of housing opportunities. Their goal is to provide access to up-to-date housing information with user-friendly tools. These tools are customized for each user group: renters, landlords and property managers, and housing agency staff that help people find and keep housing. As a housing information and business center, Front Door Housing is a virtual location where all players in the housing industry can connect and do business. For further information or to use the service visit the web-site at: Wisconsin Department of Veterans Affairs, Home Purchase Programs These programs provide 30 year mortgage loan funds for construction or purchase of a home at a below market interest rate with a minimal down payment. A Personal Loan Program allows for the purchase of a manufactured home. Applicants must meet income limits and other veteran eligibility qualifications. Contact the Wisconsin Department of Veterans Affairs for further information. Wisconsin Home Energy Assistance Program (WHEAP/LIHEAP) The Energy Services Bureau oversees Wisconsin's Home Energy Assistance Program. This includes the federally funded Low Income Home Energy Assistance Program (LIHEAP) and other related programs. Households with income at or below 150 percent of the federal poverty level may be eligible for assistance. Many households with income from farms, offices, factories, and other work places receive LIHEAP assistance. Visit the website for further information,

30 2-12

31 3. Transportation 3.1 Introduction Planning for Dodge County s future begins with a basic understanding of the County s transportation system, trends, and planned improvements. While the Transportation element in the Inventory & Trends Report provides a detailed inventory of the various components or modes of transportation, functional classes of roadways, traffic volume and accident trends, this element in the provides a summary of the County s planned transportation improvements, some of the major transportation related issues, and specific goals, objectives, policies, recommendations and programs related to transportation that will be used to guide the future use and development of land within the unincorporated areas of the County over a 20-year planning period. 3.2 Existing Transportation System Summary The transportation system within Dodge County provides the basis for the movement of goods and people through and within the county. It is an essential component to the overall development pattern of the county as well as its future economic and residential development. The term transportation system is often assumed to apply only to town roads and state and county highways. While roads account for the majority of Dodge County s transportation system, roads are not the only component. Generally, a transportation system includes any means used to move people and/or products, including: roads and highways, rail, trucking, airports and air travel, and bicycle and pedestrian facilities. Taken together, these individual transportation alternatives comprise Dodge County s transportation system. Roads and Highways Dodge County s Transportation System Includes: Roads Transit Facilities & Services Rail Facilities & Services Bicycles Facilities &Trails Airport Facilities & Services Pedestrian Facilities Trucking Facilities & Services Dodge County s transportation system is comprised primarily of state highways, county trunk highways, and town roads (see Appendix A Map 3-1). There are 2,022 miles of road in Dodge County; including: 240 miles of state highway, 542 miles of county highway, and 1,240 miles of local roads. Two major four-lane federal highways and a well-developed railway service connect Dodge County to the surrounding region. USH 151 runs in a northeast-to-southwest direction through the County providing access to/from several major metro areas outside the County including Madison to the south and Fond du Lac to the north. USH 41 runs in a north-to-south direction through the eastern portion of the County providing access to the Milwaukee metro area to the 3-1

32 southeast and the Fox Valley area to the north. These highways carry the greatest volume of traffic ranging from 7,800 vehicles/day on USH 151 to 14,300 vehicles/day on USH 41. Dodge County contains an extensive system of State and County highways. State highways in the County include STH 16, 19, 26, 28, 33, 49, 60, 67, 68, 73, and STH 175 which are all functionally classified as either principal or minor arterial roadways through the unincorporated areas of the County. These highways are the primary roads through the County and accommodate a majority of the volume of traffic; ranging from a low of 2,300 vehicles/day on STH 68 to 8,200 vehicles/day on STH 33. See Appendix A Map 3-2 for a summary of average annual traffic volumes on various federal, state and county highways in Dodge County. Rail Service The Dodge County network of railroads includes rail lines operated by the Canadian Pacific Rail System, Union Pacific, Canadian National, and Wisconsin & Southern Railroad Company (see Appendix A Map 3-1). Freight service is readily available in the County. Amtrak passenger service is available from Columbus with connections to Minneapolis/St. Paul and Chicago. Air Service The Dodge County Airport located north of Juneau and the Watertown Municipal Airport are classified as transport/corporate airports that serve corporate jets, small general aviation and cargo aircraft used for cargo and commuter air service. The Hartford Municipal Airport and Waupun airport are classified as general utility airports that serve small general aviation single and twin engine aircraft with limited airport services. There are eight (8) additional private airports and/or landing strips located in Dodge County that serve private companies, hobbyist aviators, crop dusters, or individual owners. Bicycling & Hiking The 34-mile Wild Goose State Trail traverses the County in a north-south direction from the Town of Clyman along the edge of Horicon Marsh to the City of Fond du Lac. The trail is surfaced with compacted limestone and is a multi-use trail that accommodates hiking, biking, snowmobile riding as well as horseback riding in a section between STH 60 and Pautsch Road in the Town of Chester. Hiking trails are available in Dodge County s Astico Park, Ledge Park and at the Horicon Marsh. Transit/Para-Transit (Disability and Special Needs Transit Services) Publicly funded taxi services are provided in the cities of Hartford and Watertown; however, there is no public transit bus service in Dodge County. Para-transit service is provided in the cities of Watertown, Beaver Dam, and Waupun as shared-ride taxi service. Further details regarding transportation facilities in the County are provided in the Inventory and Trends Report. 3-2

33 3.3 Planned Transportation Improvements A number of transportation improvement projects have been planned within Dodge County for the next twenty years. These improvements are identified and described in the Inventory and Trends Report. 3.4 Highway Access Management Highway access management can generally be defined as the process of balancing the need for access to/from adjacent land development while preserving the function and flow of traffic on the adjacent highway in terms of safety, traffic volume capacity, and speed. This process is achieved through managing the design, location, and separation of driveways, median openings, and other road intersections to the highway system. In order to achieve successful access management, land use development should be integrated with the layout and design of roads and major highways. Access management in Dodge County is partially achieved through the driveway permitting process and the highway setback ordinance. Dodge County Highway Setback Ordinance Dodge County has a building setback line along all public highways, at intersections of highways with other highways, and at highway railway crossings. These setback lines are established at specified distances from the centerline of the roadway. Structures are not permitted within this setback line. The table below displays the setbacks for the different classifications of roads in Dodge County. Table 3-1: Dodge County Highway Setback Requirements Minimum Setback Minimum from Roadway Type from Right of Way Road Centerline Urbanized 1 27 feet 60 feet Town Road 42 feet 75 feet County Highway 67 feet 100 feet State/U.S. Highway 67 feet 100 feet Source: Dodge County Planning, Development and Parks Department. Notes: 1 Urbanized roadway type includes specially defines sections of roads in developed rural areas where a reduced setback has been allowed. 2 The required setback will always be the greatest of the two distances noted above. 3-3

34 3.5 Coordination with Existing Transportation Plans State Plans The Wisconsin Department of Transportation maintains several plans with state-wide policies and recommendations regarding various aspects of transportation. These plans should be taken into consideration when making future transportation decisions in Dodge County. These plans have been reviewed and coordinated with throughout the planning process. 1. Translink 21: A Multi-modal Transportation Plan for Wisconsin s 21 st Century 2. Wisconsin State Highway Plan Wisconsin Bicycle Transportation Plan Wisconsin State Airport System Plan Wisconsin Pedestrian Policy Plan Wisconsin Department of Transportation Access Management System Plan 7. Statewide Transportation Improvement Plan 8. Six-Year Highway Improvement Program Regional Plans Dodge County is not a member of a regional planning commission or a Metropolitan Planning Organization (MPO). There are currently no existing regional transportation plans that impact Dodge County. Local Plans Local transportation plans have been produced by the Dodge County Highway Department. Existing plans include: 1. Dodge County Capital Improvement Plan 2. Local Road Improvement Program Plans Local Road Improvement Program (LRIP) plans must be completed by towns, villages, and cities in order to receive allocations of the state gas tax to fund road improvements. These plans set priorities for road improvement projects and are updated on a regular basis. Many of the municipalities in the county also complete capital improvement plans which detail road improvement and planning projects. 3.6 Transportation Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Transportation element. Goal: A safe and well-maintained transportation network. 3-4

35 Goal: Support a transportation system which, through its location, capacity, and design, will effectively serve the existing land use development pattern and meet anticipated transportation demand generated by existing and planned land uses. Objectives: 1. Improve existing safety-deficient roadways in the most economical and efficient manner to reduce accident exposure and maintain and upgrade those existing roads before developing new major highways. 2. Develop a long-term transportation plan which prioritizes roadway improvement projects, preserves a high aesthetic quality and posses a positive visual relation to the urban and rural landscape, and minimizes disruption of natural, historical and cultural resources. 3. Objectively determine the environmental and economic impacts of proposed transportation improvements. 4. Seek opportunities to assist and expand the railroad system operating in Dodge County, including opportunities for expanded AMTRACK or commuter rail service. 5. Maintain a safe, high quality airport to meet air transportation and communication needs of those living and working in Dodge County. 6. Encourage the adoption of adequate town road standards in all the towns and to require developers to build any new town roads to those standards. 7. Prepare a bicycle and pedestrian plan for the County which will designate and sign bicycle routes throughout the County on roads with low traffic volumes as well as construct paved shoulders on segments of highways with higher traffic volumes and a system of multi-use trails separated from roadways. 8. Provide highway bypasses of Watertown, Juneau, Horicon and other communities to facilitate the through movement of traffic. 9. Encourage WisDOT to improve existing highways to include passing and turning lanes where appropriate and necessary. 10. Develop an access management plan on arterial and collector highways. 11. Use official mapping to define and preserve corridors for future improvements including setbacks, access points and vision triangles. 12. Conduct a park and ride study and develop new lots if needed. 3-5

36 13. Review needs and prepare a plan for specialized transit programs throughout the County such as shared ride taxi service to the County s elderly and handicapped. 3.7 Transportation Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Work to limit new rail crossings and eliminate existing crossings whenever possible to improve safety. 2. Support the jurisdictional transfer of highways in accordance with periodic updating of the functional classification of highways. 3. Implement and preserve access controls along all arterial and collector highways, and consider the need for additional access control for other county trunk highways and some town continuous through roads. 4. Minimize creation of smaller remnant parcels or severance of active agricultural operations in the planning and construction of highway improvements. 5. In cooperation with the County Highway Department and Wisconsin Department of Transportation, plan to preserve abandoned rail corridors as recreational trails so that they are available for future transportation uses if needed. 6. Ensure that major subdivision streets can connect to future streets on abutting properties whenever practical to do so. 7. Require developers to provide access roads which at least meet minimum town road standards. 8. Discourage new driveways that exceed 1,000 feet in length, divide farm fields or remove more than one acre of farmland from agricultural use. Any new driveway to an interior lot should provide a 66 -foot right-of-way and should not be blocked by a building at the rear lot line. 3-6

37 9. Road development and new driveway accesses on active agricultural land should be limited to the fullest extent possible. 10. Accident exposures should be reduced by improving deficient roadways and intersections by citing such deficiencies during road inspections. 11. All new development projects should accommodate the needs of pedestrians, bicyclists, and the physically challenged. 12. Dead end roads and cul-de-sacs should be avoided whenever possible. 13. New driveways shall be regulated to ensure adequate emergency vehicle access, to maintain safe driveway spacing standards, and to prevent damage to County Highways caused by drainage impacts. 14. Developers should bear all of the costs for improvements and extensions to the road network. 15. New homes that require new individual driveways should be discouraged along federal, state and county highways. 16. Traffic impact studies shall be required as deemed appropriate by the Planning, Development and Parks Committee. 17. Construct new road connections in accordance with the Comprehensive Plan Future Land Use Map. 18. Support the use of CTH A from STH 26 to USH 151 as a bypass route of the City of Juneau and as the preferred truck route alternate for STH 26 from Juneau to Waupun. Recommendations: 1. Develop standards for driveway spacing on all types of roadways. 2. Develop County driveway standards to regulate the length and width of private driveways. 3. Request that the DOT construct on and off ramps at the intersection of USH 151 and CTH C. 4. Limit the development of new homes that require individual driveways along all types of highways. 5. Recommend that the DOT installs traffic lights at the intersection of STH 60 and CTH P. 3-7

38 6. Work with State DOT to install traffic lights at Western Ave. and Hwy Work with local governments to create bicycle and pedestrian linkages between neighborhoods and subdivisions. 8. Upgrade CTH A from STH 26 to USH 151 in order to serve as the preferred alternate route of STH 26 north to Waupun. 9. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to protect the ongoing function and operation of the Dodge County Airport through the limited use and/or development of land adjoining and within a 3-mile radius of the airport property. 10. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to protect the ongoing function and operation of the Dodge County highway system through the limited use and/or development of land adjoining and within 200 feet of all county highways. 3.8 Transportation Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Transportation Element of the. Early Project Scoping Tools A WDOT pilot program is underway to encourage local government officials and WDOT district staff to jointly evaluate potential local projects before they apply to WDOT for funding. The purpose of this effort is to improve program stability by providing accurate cost estimates and realistic delivery timelines for local highway and bridge projects at the outset, saving local government and WDOT time and cost in delivering local transportation projects. For further information on the pilot program WDOT should be contacted. Local Bridge Improvement Assistance The Local Bridge Improvement Assistance program helps rehabilitate and replace, on a costshared basis, the most seriously deficient existing local bridges on Wisconsin's local highway systems. Counties, cities, villages, and towns are eligible for rehabilitation funding on bridges with sufficiency ratings less than 80, and replacement funding on bridges with sufficiency ratings less than 50. For further information on the program WDOT should be contacted. Local Roads Improvement Program (LRIP) Established in 1991, the Local Roads Improvement Program (LRIP) assists local governments in improving seriously deteriorating county highways, town roads, and city and village streets. A reimbursement program, LRIP pays up to 50 percent of total eligible costs with local governments providing the balance. 3-8

39 The program has three basic components: County Highway Improvement (CHIP); Town Road Improvement (TRIP); and Municipal Street Improvement (MSIP). Three additional discretionary programs (CHIP-D, TRIP-D and MSIP-D) allow municipalities to apply for additional funds for high-cost road projects. For further information on the program WDOT should be contacted. Adopt-A-Highway Program The Adopt-A-Highway Program is administered by the WDOT. The program was initiated to allow groups to volunteer and support the state s anti-litter program in a more direct way. Each qualified group takes responsibility for litter control on a segment of state highway. The group picks up litter on a segment at least three times per year between April 1 and November 1. Groups do not work in dangerous areas like medians, bridges, or steep slopes. In addition, a sign announcing a group s litter control sponsorship can be installed. The state Adopt-A-Highway coordinator should be contacted for further information. Applications and forms are available through the WDOT website. Operation Lifesaver, Inc., Wisconsin (WOLI) The goal of Wisconsin Operation Lifesaver, Inc. (WOLI) is to reduce the number of grade crossing crashes, fatalities and injuries. WOLI has a two-tiered membership program that includes corporations, nonprofit organizations and individuals, and is funded by volunteer contributions from the railroads operating within Wisconsin. Operation Lifesaver is a nonprofit public information program operating in 49 states (not Hawaii). For more information contact Jim Tracey, WDOT who is the WOLI state coordinator at (800) WIS-RAIL. Transportation Economic Assistance (TEA) Program The Transportation Economic Assistance program provides 50 percent state grants to governing bodies, private businesses, and consortiums for road, rail, harbor and airport projects that help attract employers to Wisconsin, or encourage business and industry to remain and expand in the state. Grants of up to $1 million are available for transportation improvements that are essential for an economic development project. It must be scheduled to begin within three years, have the local government's endorsement, and benefit the public. For more information about this program contact the WDOT, Division of Transportation Investment Management. Local Transportation Enhancement Program Transportation enhancements (TE) are transportation-related activities that are designed to strengthen the cultural, aesthetic, and environmental aspects of transportation systems. The transportation enhancements program provides for the implementation of a variety of nontraditional projects, with examples ranging from the restoration of historic transportation facilities to bike and pedestrian facilities. Most of the requests and projects awarded in Wisconsin have been for bicycle facilities. Examples of bicycle projects include multi-use trails (in greenways, former rail trails, etc.), paved shoulders, bike lanes, bicycle route signage, bicycle parking, overpasses/underpasses/bridges, and sidewalks. Federal regulations restrict the use of funds on trails that allow motorized users, except snowmobiles. TEA 21 expanded the definition of transportation enhancements eligibility to specifically include the provision of safety and educational activities for pedestrians and bicyclists, which had not been clearly eligible under ISTEA. 3-9

40 3-10

41 4. Utilities and Community Facilities 4.1 Introduction Along with the County s transportation system, utilities and community facilities are the most important long-term and permanent features that will influence future growth and development, or a lack thereof, within Dodge County. The Inventory and Trends Report provides a detailed inventory of the existing utilities and community facilities in Dodge County. This element provides a summary of the County s existing utilities and community facilities and the specific goals, objectives, policies, recommendations and programs related to the provision of utilities and community facilities that will be used to guide the future use and development of land within the unincorporated areas of the County over a 20-year planning period. 4.2 Existing Utilities and Community Facilities Summary The following section provides a summary of the detailed inventory of the County s utilities and community facilities provided in the Inventory and Trends Report with regard to utility and community facility needs or issues in the county for planning period. Public Building and Administrative Facilities Dodge County and each community within the county own, operate, and maintain a number of public buildings and facilities, most of which are located in the City of Juneau. Dodge County administrative facilities are located in the Administration Building at 127 East Oak Street in the City of Juneau. The following are facilities currently owned by Dodge County: Dodge County Administration Building; 127 East Oak Street, City of Juneau Dodge County Highway Department Building; 211 East Center St, City of Juneau Satellite Highway Department Shops Beaver Dam Shop; 1600 North Spring St, City of Beaver Dam (To be shut down) Mayville Shop; 853 Horicon St, City of Mayville Fox Lake Shop; 635 Spring St, Fox Lake (To be shut down) Reeseville Shop; 406 North Main St, Reeseville Neosho Shop; 271 West Lehman St, Neosho CTH A Shop; Town of Trenton Dodge County Justice Facility; 210 West Center St, City of Juneau Dodge County Detention/Jail Facility; 216 West Center St, City of Juneau Dodge County Office Building; 143 East Center St, City of Juneau Clearview North; 199 Home Road, City of Juneau Clearview South; 198 Home Road, City of Juneau Sheriff s Department; 141 North Main St, City of Juneau Dodge County Airport; N 6471 STH 26, Town of Oak Grove Each of these buildings and facilities has their own maintenance and rehabilitation schedules. Each community as well the county will need to continue to maintain facilities in order to 4-1

42 provide adequate accommodations for government operations. This in turn requires properly allocating funding for improvements and maintenance. Police The Dodge County Sheriff s Department serves as the primary law enforcement agency to many communities in the county and also operates the County Jail in Juneau. New jail and court facilities were completed in The jail occupies 138,490 square feet and houses up to 356 inmates. The courts portion of the building occupies 115,104 square feet and houses five courtrooms, the Clerk of Courts and all other administrative offices. In addition to the County Sheriff s Department, there are nineteen (19) municipal police departments in the County. Fire, and Emergency Medical Services Dodge County is served by twenty-five (25) fire departments and sixteen (16) emergency medical service providers (some departments in the county provide both of these services). See Appendix A Map 4-1 and 4-2 for the service areas of each fire and emergency service provider in the County. Further details on the inventory of equipment and services each department provides can be found in the Inventory and Trends Report. Hospitals and Health Care Services The availability of adequate health care facilities and services is becoming increasingly important for measuring the attractiveness of a community in which to live and work. The following hospitals serve the residents of Dodge County: Beaver Dam Community Hospital provides full inpatient and outpatient services, 24-hour emergency services, and urgent care services. Columbus Community Hospital provides inpatient and outpatient services, 24- hour emergency services, urgent care and 24-hour emergency services. Waupun Memorial Hospital also provides inpatient and outpatient services, 24- hour emergency department, urgent care services, intensive care unit, physical medical services, obstetrics unit, and more. Watertown Memorial Hospital provides an array of services ranging from urgent care and obstetrics to surgery and chronic pain management. Aurora Medical Center in Hartford offers a variety of services and departments including adult day care, rehabilitation center, birth day center, cancer services, emergency department, GI services, orthopedics, pain management center, sleep disorders center, wound care, and hyperbaric oxygen therapy. As the population ages and the baby-boomers move into older age groups there will be increasing demand for long-term care, nursing homes, community based residential facilities, and similar other elder care facilities. The following facilities are currently located in Dodge County: 4-2

43 Beaver Dam Care Center, Beaver Dam, 120 beds, privately owned facility Hillside Manor, Beaver Dam, 123 beds, voluntary nonprofit corporation Clearview North, Juneau, 142 beds, county owned Clearview South, Juneau, 120 beds, county owned Hope Health and Rehabilitation Center, Lomira, 42 beds, privately owned Mayville Nursing and Rehabilitation Center, Mayville, 102 beds, privately owned Continental Manor Health and Rehabilitation Center, Randolph, 84 beds, privately owned Beverly Terrace, Watertown, 125 beds, privately owned Marquardt Memorial Manor Inc., Watertown, 140 beds, voluntary nonprofit corporation Christian Home and Rehabilitation Center, Waupun, 81 beds, voluntary nonprofit corporation Public Schools Dodge County is served by nineteen (19) school districts. The largest districts in terms of geographic area are the Beaver Dam, Waupun, and Mayville School Districts. Most districts have been experiencing declining enrollments over the last five years. All school districts will need to continue to meet and discuss opportunities for further cooperation in order to provide quality educational services in the county while facing budget constraints and generally declining enrollments. See Appendix A Map 4-3 for the geographical areas and communities served by each school district in the County. Dodge County is also home to higher education facilities. Post-secondary schools such as trade schools and technical colleges are available in Beaver Dam, Hartford, Mayville, Watertown, and Waupun. Moraine Park Technical College is located in Beaver Dam, with branches located in Hartford, Mayville, and Waupun. The Madison Area Technical College and Maranatha Baptist Bible College are located in Watertown. Public Libraries Dodge County is served by fifteen (15) municipal libraries that are part of the Mid-Wisconsin Federated Library System. Correction al Institutions There are four (4) correctional facilities located in Dodge County. The Waupun Correctional Institution, the John C. Burke Correctional Center, and the Dodge County Correctional Institution all located in Waupun. The Fox Lake Correctional Institution is located in the Town of Fox Lake. Municipal Courts Dodge County is home to four municipal courts located in the Town of Fox Lake, the City of Beaver Dam, the City of Fox Lake, and the City of Horicon. 4-3

44 Parks and Recreation Facilities A wide variety of parks, recreation, and open spaces are provided throughout Dodge County. County-owned park land and facilities include: Horicon Ledge Park is an 82.8 acre campground park located about two miles northeast of the City of Horicon in the Town of Williamstown; Astico Park is located on 100 acres of land located about three miles east of the City of Columbus in the Town of Elba; Derge Park is a 12-acre park located on the west central shore of Beaver Dam Lake in the northwest part of the County between Beaver Dam and Randolph; Wild Goose State Trail is a multi-use recreational trail which runs north to the City of Fond du Lac and south to STH 60, south of the City of Juneau. About 20 miles of the trail are located in Dodge County. The trail is relatively flat as it follows an abandoned railroad grade. Nitschke Park is nearly 54 acres and located near the center of Dodge County adjacent to the Wild Goose State Trail and just west of the Horicon Marsh. The property contains up to 46 effigy, conical and linear effigy mounds. Harnischfeger Park is 132 acres of wooded areas and open space located along the Rock River west of the unincorporated community of Ashippun in the Town of Lebanon. See Appendix A Map 4-4 for the town, county, state and federal recreational facilities in the County. Solid Waste and Recycling Facilities There is one privately operated landfill in Dodge County, the Superior Glacier Ridge Landfill, located in the Town of Williamstown. Dodge County does not provide any services related to solid waste or recycling. The majority of towns in Dodge County provide Saturday morning drop-off of solid waste and recyclables, while others contract with private companies for curbside collection of solid waste and recycling services. The county does coordinate a Clean Sweep Program. Telephone Service Four communication companies provide telephone service to the county. Century Tel, Inc., SBC, Telephone and Data Systems, Inc., and Verizon split the county into various service areas. Cellular telephone service is available throughout the county. See Appendix A Map 4-5 for the service areas of each telephone service provider. 4-4

45 Electricity Three (3) companies (two private firms and one cooperative) provide electricity to residential and commercial users in Dodge County. Three municipal electric systems also provide service to portions of the county. Alliant Energy primarily serves the northern two-thirds of the county, Wisconsin Electric Power Company serves the far southern and far eastern portions of the county, and the Columbus Rural Electric Cooperative serves the City of Columbus and western portions of the county. The City of Juneau has its own system. The City of Waupun also serves portions of the Town of Chester. The Village of Hustisford serves most of the Town of Hustisford. See Appendix A Map 4-6 for the service areas for each electric utility and cooperative serving Dodge County. Natural Gas Natural gas is provided by Wisconsin Gas Company, Wisconsin Electric Power Company, and Alliant Energy provide throughout the county. See Appendix A Map 4-7 for the service areas of each natural gas provider. Wind Energy Facilities There are two major wind energy facility projects planned for Dodge County. One in the Town of Herman will contain 33 wind turbines and be capable of producing 54 megawatts of power. Construction is scheduled to begin in early The other will be located in the Dodge County Towns of Leroy and Lomira as well as two neighboring towns in Fond Du Lac County. The proposed facility will include up to 133 turbines (the final number and proximity to the Horicon Marsh have not yet been approved) and capable of producing 200 megawatts of power. Sanitary Sewer and Public Water Facilities Sanitary sewer and public water facilities are primarily found within the villages and cities in the County. Sanitary districts also operate a few town systems. There are a total of seventeen (17) municipal sanitary sewer providers and twelve (12) districts. See Appendix A Map 4-8 for all of the public sanitary sewer and water systems in the County. Nineteen (19) communities in Dodge County provide public water supply systems, either through a municipal system or one managed by a sanitary district. The need to expand or rehabilitate such facilities or create new facilities will be primarily based on the location of new or increased density of housing, commercial and industrial development. Sanitary sewer needs were evaluated as part of the comprehensive planning effort undertaken by many of the incorporated communities that were part of this planning process. Each community will need to continue to monitor local growth trends to determine the increased need for sewer and water infrastructure. Opportunities for jointly developing such facilities should also be continually evaluated. 4-5

46 Private Onsite Wastewater Treatment System (POWTS) Facilities The majority of POWTS, more commonly referred to as septic systems, are located in the unincorporated areas of Dodge County. POWTS are permitted by Dodge County Planning, Development and Parks and installed by licensed plumbers. Operation and maintenance of POWTS are the responsibility of the property owner. The county will continue to educate, administer POWTS regulations, and pursue funding for the replacement of failing POWTS. 4.3 Expansion or Rehabilitation of Existing Utilities and Facilities Wisconsin s comprehensive planning legislation requires that the Utilities and Community Facilities element of the comprehensive plan include an approximate timetable that forecasts the need to expand or rehabilitate existing utilities and facilities or to create new utilities and facilities. Each community that participated in the Dodge County multi-jurisdictional planning process completed a listing of short and long term utility and community facility needs and projects. Short term projects were defined as occurring within one to five years and long term projects were defined as occurring six years and beyond. Each community also completed a map which represented the locations of improvements and a general short or long-term timetable for completion. A summary of the planned expansion and/or rehabilitation of utility and community facility improvements for all of the participating communities can be found in Appendix B and in each community s respective comprehensive plan. 4.4 Future Needs for Government Services The future of government services within Dodge County will be shaped by a number of factors including: Reduced budgets at all levels of government. Consolidations and increased cooperation in the delivery of services. Aging population and therefore changing demands. Economic sector shifts. Changing demands from business and industry for services and infrastructure. Changes in regulation. There will be continual changes in existing regulations and creation of new rules which will alter how services are delivered. All of the above trends as well as the future development pattern within Dodge County will dictate the future needs for government services. As indicated within Section 4.3, municipalities within the county have a variety of plans and projects that will be needed or completed over the planning period, many of which will have a direct correlation to the increase or decrease in services that are provided to residents. With respect to Dodge County s needs for and delivery of facilities and services, County departments provide specific recommendations regarding short and long-term facility and service needs as part of the County s capital improvement programming process. Appendix C provides a 4-6

47 detailed summary of the facility and service improvements programmed for completion/implementation in the time period. In addition, as part of the comprehensive planning process, county departments have provided specific short and long-term policies and recommendations regarding the various facilities and/or services within their area of responsibility. Table 4-2 presents a summary of the short and longterm policies and utility and community facility recommendations. Table 4-2: County Facilities & Services; Policies and Recommendations; Dodge County County Policies Department Human Services 1. Promote more county partnerships to meet increasing service demands. 2. County Board approval for job position changes should not be required if a loss of grant funding for the positions would result. 3. All department personnel should have access to their own and internet service. Highway Department (and Airport) 1. The County highway system should be maintained as in the past while reconstructing as many substandard roads as possible. 2. County highways that function as local roads and do not meet the criteria for a county highway should be transferred to Town jurisdiction. 3. All permit requirements and fees of the County Planning, Development and Parks Department should be waived for road improvement projects. District Attorney 1. Provide community safety at the lowest possible cost to taxpayers. Recommendations 1. Add additional staff as the population and the demand for services increase. 2. Consider the need for additional office space within the next 5 10 years. 3. Reduce the waiting time for placement of children and adults in need of long term care. 1. Create a Future Land Use Plan for the land surrounding the Dodge County Airport. 2. Increase spending on maintenance of County highways in order to keep pace with the money needed to reconstruct the pavement on a highway at least every 15 years (design life of asphalt pavement). 1. Update equipment as necessary to process and share information in an efficient manner. 2. Hire additional prosecutors and legal secretaries to keep up with current demand as well as the future demand created by an increasing population. Clearview 1. The County should encourage the development of more assisted living facilities. 2. Health care regulations should be followed without regard to political issues and concerns. 1. Investigate creating a more efficient building layout. 2. Develop more assisted living facility units. 4-7

48 Planning, Development and Parks 1. The County Land Use Code should be updated regularly. 2. Continue to expand and develop the park system relative to population increases. Library Services 1. The Dodge County Library Service will continue to provide not less than full statutory reimbursement funding to all public libraries in the County for access to County residents in towns and villages that do not maintain a public library. 2. The Dodge County Library Service should offer disc repair technology to Dodge County libraries due to the shift in public libraries from tape to disc format. Information Technology 1. All County departments shall use the Information Technology Department for purchasing and installing most technical equipment. 2. All County employees should sign a document stating that they have read and understand the County s policy on computer and telephone usage. 3. The County should promote the use of the Voice Over Internet Protocol (VOIP) system wherever feasible. Corporation Counsel 1. The department will continue to comply with an ever-increasing number of new processes and procedures which are mandated by a growing number of new state laws. Central Service Department 1. The County should network in-house copiers for all office functions, such as, faxing, scanning, copying and printing. 2. Future color and high-speed copiers should be networked for interdepartmental usage from desk top computers. County Treasurer 1. The County should offer collection of first and second installments of taxes. 2. Continue to utilize the microfilm reader/printer in the Register of Deeds office, in-order to reduce the need of purchasing one for the Treasure s Department. 3. Continue to utilize the Information Technology Department s training programs of computer programs (Excel, Word, and Windows) for deputies. 1. Restore a fully functional County economic development program. 2. Continue to assist communities develop comprehensive plans. 1. Maintain a lease within a Dodge County member library that is a member of the Mid-Wisconsin Federated Library System in order to share in future automation projects. 2. Examine the viability of continuing to offer audio book rotations in both tape and disc format. 1. Install wireless internet access in courtrooms and at the airport. 2. Increase capacity of network by installing fiber optics. 3. Create a County policy on cellular telephone usage. 4. Increase the number of technical support staff, add administrative staff, create more office space and update equipment as the demand for information technology services increase. 5. Install mobile data terminals in squad cars. 1. Hire an additional attorney and legal secretary to keep up with the demands placed on the department. 1. Add a color copier and an additional highspeed copier to the department. 2. The Paper Plate (Master) making machine will eventually be outdated, a new model will be needed in-order to replace the existing machine. 1. The County needs to keep up on computer technology, not allowing the County to fall behind technology trends. 4-8

49 County Clerk 1. The County Clerk Department should maintain and update the County Clerks website with inter-office staff. 2. The County Clerk s Office will implement the Statewide Voter Registration System and maintain all voter records. Emergency Management 1. The Department will continue to build strong relationships with communities in and surrounding Dodge County. 2. Dodge County should add additional emergency communication towers and equipment. 3. The Department will continue to train and exercise with first responders and testing county emergency plans. 4. The Department will continue to be the lead agency for coordination of resources and equipment in large scale events or disasters. 5. Dodge County should form a public safety department. 6. Dodge County should continue to promote the Dodge County Citizens Corps. SOURCE: Dodge County Planning, Development & Parks Department; Add an imaging system to the department for imaging election and county board records. 2. Further develop the County Clerks website. 3. Department staff needs to attend all computer/technology training available. 1. Form a new county emergency operations plan, a county wide mitigation plan, vulnerability assessment, strategic plan; train and exercise these plans with Dodge County municipalities, towns, and first responders. 2. Add two additional personal; a training/planning specialist and an office assistant. 3. Purchase radio communication equipment that will allow Dodge County to communicate with surrounding counties, since some counties have first responder districts in Dodge County. 4. Implement the National Incident Management System (Federal Mandate). 4.5 Utilities and Community Facilities Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Utilities and Community Facilities element. General Goal: Provide a full range of quality, efficient and cost-effective community facilities and services that meet the existing and future demands of residents, land owners, and visitors. Goal: Support the provision of needed public facilities in an economic and efficient manner that accommodates planned growth without adversely affecting farmland or farm operations. Stormwater Management Goal: Promote stormwater management practices which reduce property and road damage and ensure a high level of water quality. Water Supply Goal: Protect the quality and quantity of the county s ground and surface water features. 4-9

50 Goal: Ensure that the water supply for Dodge County has sufficient capacity, remains drinkable and is available to meet the needs of current and future residents. Private Onsite Wastewater Treatment Systems (POWTS) and Sanitary Sewer Goal: Ensure proper disposal of private onsite wastewater to ensure public health and protect ground and surface water quality. Solid Waste Disposal and Recycling Facilities Goal: Promote effective solid waste disposal and recycling services and systems that protect the public health, natural environment, and general appearance of land use within Dodge County. Parks and Outdoor Recreation Goal: A high quality network of park and recreational lands with safe and accessible facilities meeting the needs and demands of the residents of Dodge County and its visitors. Goal: Provide a planned system of parks and recreation areas that offer a diversity of recreational opportunities. Utilities and Communication Services Goal: Ensure the provision of reliable, efficient, and well-planned utilities (i.e. gas, electric) and communication services (i.e. telephone, cable, telecommunications) to adequately serve existing and future development. Libraries and Schools Goal: Promote quality schools and access to educational opportunities for everyone. Police, Fire, and Emergency Medical Services and Facilities Goal: Ensure a level of police, fire and emergency medical services that meets existing and future demands of residents and development patterns. Government Facilities Goal: Maintain the quality of all Dodge County facilities. Health and Child Care Services and Facilities Goal: Ensure that Dodge County residents have reasonable access to health care facilities and child care. Objectives: 1. Direct more intense, urban forms of development into areas that can provide adequate municipal services including public sewer and public water to support the development. 4-10

51 2. Examine the costs to publicly service proposed new developments including roads, sewer and water services, stormwater management, schools and other costs and determine the economic feasibility of the development. 3. Encourage municipalities, sanitary and lake management districts to adopt five and ten year phasing plans for the expansion of public facilities and development in their service areas. 4. Encourage the installation of public sewer and water systems where appropriate and encourage sanitary districts which provide public sewer systems but not water systems to install public water systems. 5. Promote the extension of energy services to communities that do not presently have these services. 6. Work with the providers of communication services to broaden local calling areas. 7. Provide a full range of emergency services to serve the people of Dodge County. 8. Encourage the timely expansion of public schools in anticipation of increases in the school age population. 9. Encourage the expansion and diversification of the health care industry serving Dodge County in anticipation of an aging population. 10. Establish means to utilize input and resources from the public, organizations, municipalities and other agencies in the planning, development and operation of the County Park System. 11. Create and maintain a volunteer fund raising group to assist in park acquisition and development which, among other things, will seek donations of land suitable for development as part of the County Park System. 12. Develop site plans for all County parks, including provision for implementation of recommendations of the Americans with Disabilities Act and identify four possible new sites for large natural resource-oriented parks. 13. Sponsor programs and events in Dodge County s parks to draw public attention to the system. 14. Create permanent snowmobile trails through long-term easement agreements or fee simple acquisition of corridors. 15. Systematically expand the amount of land in the park system to reach the average per capita county parkland ratio for Wisconsin Counties and National Recreation and 4-11

52 Parks Association Standards and then maintain periodic land acquisitions to remain at or above the State average and National standards. 16. Establish a Dodge County Parks Coalition of all providers of park and recreational lands and facilities in the County to coordinate opportunities, share information and promote multi-jurisdictional approaches to acquiring, developing and managing parks and recreational lands. 17. Create a cost share incentive for smaller municipalities in order to encourage development of local recreational facilities where needed. 18. Retain tax delinquent land that would be an appropriate addition to the County park and open space program. 4.6 Utilities and Community Facilities Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Residential growth should only expand as the municipality s ability to supply municipal services increases. 2. Discourage the construction of schools along arterial highways. Encourage new schools to be located along minor collector roads with adequate buffers from traffic. 3. Assist eligible cities, villages and sanitary districts to obtain grants for needed infrastructure expansion and improvements. 4. Work with the health care industry to provide a full range of services to all age groups in Dodge County. 5. Offer park planning and grant writing assistance to local municipalities. 6. Work with the Wisconsin Department of Natural Resources to receive ideas and grants to provide ADA compliant County parks and facilities. 4-12

53 7. Seek recreation grants for county park projects favored by the Wisconsin Department of Natural Resources, and encourage state purchase and County management of recreational or open space property where appropriate. 8. Allow development in areas identified for future park and recreation use only after a determination by the Planning, Development and Parks Committee that the use of the land for public recreation would be impractical and not in the best interest of the County. 9. Limit rural residential development to sites with soil conditions suitable for a private sanitary system other than a holding tank. 10. Residential growth should only expand as a municipality s ability to supply municipal services increases. 11. Unsewered development should not be allowed if there is a reasonable possibility that the subject property would be served by public sewer within five years. 12. Future schools and other public buildings should only be located where a public sanitary sewer system is available. 13. New major subdivisions should not be approved in a sanitary district with the waste treatment plant operating near its capacity level or if the proposed development would cause the treatment plant to exceed capacity levels. 14. Sanitary districts and Lake Management districts should provide a public water system along with their sanitary sewer systems. 15. Construction of new schools should not be allowed in prime agricultural areas or along arterial highways. 16. Residential, commercial and industrial growth should occur in relation to each municipality s ability to supply additional police and fire protection. 17. Shared police and fire protection services between municipalities should be considered, particularly in urban service areas and other high growth areas. 18. Municipalities should consider sharing library services where appropriate, especially in areas designated for growth. 19. The County should ensure that police, fire, and emergency services adequately meet the existing and future demands of the County by doing an annual review of such services. 4-13

54 20. Storm water management should be addressed as part of the review of all development proposals in order to evaluate the potential to increase storm water runoff to adjacent lands. 21. New on-site private waste water treatment facilities shall not be allowed within a public sanitary sewer district. 22. The amount of park and recreation land should be increased as the need for recreation facilities increase. 23. The County should continue to produce an annual Capital Improvement Program Plan to assess its needs in regard to County facilities. 24. One-half of the proceeds from the County 0.5 cent sales tax should be used to fund County building/remodeling projects, while the other one-half should be used for property tax relief. Recommendations: 1. Continue to produce a Capital Improvement Program Plan annually. 2. Obtain County Board approval to use the County sales tax revenue equally for County building /remodeling projects and for property tax relief. 3. Continue to require the developer of a new residential lot to provide a park and recreation fee based on the number of new housing units created. 4. Conduct an annual review of police, fire and emergency services offered in the County to ensure that the services adequately meeting the needs of the County. 5. Establish criteria for identifying the primary corridors suitable for permanent trails and obtain snowmobile development grants to purchase long-term rights to trail lands meeting the criteria for permanent trails. 6. Publish a regular electronic parks newsletter on the Internet with articles identifying accomplishments and opportunities for public involvement for limited distribution to the County Board, the local news media, and to the general public through the Planning, Development and Parks Department. 7. Identify recreational needs and criteria for use in identifying high priority future County park sites. 8. Acquire land adjacent to County parks to expand them to at least 100 acres. 9. Obtain listings of tax delinquent land from the County Treasurer and assess its value as part of the County park and open space system. 4-14

55 10. Investigate code amendments that would require all developers to assume the expansion costs of their developments to protect taxpayers from bearing the cost of new development. 11. Introduce a standardized cost-benefit analysis methodology for assessing the cumulative fiscal impact of proposed major developments on the ability of local taxing jurisdictions to service the projected development before approving largescale rezoning or major subdivisions. 12. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to regulate the location, construction, installation, alteration, and design of private, on-site water supply and sanitary sewage disposal systems as authorized by Wisconsin Statutes. 13. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to restrict and regulate the location, installation, appearance, height, and potential impact of wind energy system towers and related facilities to the extent permissible given applicable state and federal regulations. At a minimum, these regulations should be developed with the intent to: Require the location of wind energy system towers in non-residential areas throughout the county and in a manner so as to minimize potential community impacts, including adverse visual impacts, as well as potential impacts on surrounding properties, natural resources, migratory birds, raptors, and other wildlife Special land division regulations shall be established in the County Land Use Code as necessary to require the dedication of land (or a proportionate share fee payment in lieu of such dedication) necessary for public rights-of-way, parks, outdoor recreation sites, etc. as designated on the county and/or municipal comprehensive plan, official map, or other adopted plan. 14. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to restrict and regulate the location, installation, appearance, height, and potential impact of wireless communication towers and antenna facilities to the extent permissible given applicable state and federal regulations (including but not limited to the Federal Telecommunications Act of 1996). At a minimum, these regulations should be developed with the intent to: Require the location of telecommunication towers in non-residential areas throughout the county and in a manner so as to minimize potential community impacts, including adverse visual impacts Minimize the total number of towers needed by requiring co-location of antenna facilities on existing towers and other appropriate structures as a priority over the construction of new towers 4-15

56 4.7 Utilities and Community Facilities Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Utilities & Community Facilities Element of the. State Programs Wisconsin Department of Public Instruction (DPI) The Wisconsin Department of Public Instruction offers several grants, programs and aid to communities with respect to school facility, services and education improvement. Through the DPI web-site, a link titled Grant Information offers a comprehensive listing (ordered alphabetically with their respective ID number, description and type of grant). Links are provided to pages with grant details, special requirements, and contact information. Solid and Hazardous Waste Education Center Solid and Hazardous Waste Education Center enhances Wisconsin's environment and economy by providing education and technical assistance programs to business and communities on source reduction, recycling, solid waste management, and pollution prevention. Visit for further information. Aids for the Acquisition and Development of Local Parks Funds are available to assist local communities acquiring and developing public outdoor recreation areas as per s (20), Wis. Stats. Counties, towns, cities, villages and Indian Tribes with an approved Comprehensive Outdoor Recreation Plan are eligible to apply. The program is offered from the WDNR, Bureau of Community Financial Assistance. There is a 50 percent local match required. Awards are granted on a competitive basis. Acquisition and development of public outdoor recreation areas are eligible projects. Priority is given to the acquisition of land where a scarcity of outdoor recreation land exists. Rural Community Assistance Program The Rural Community Assistance Program (RCAP) is administered by the Wisconsin Community Action Program Association (WISCAP) to assure safe drinking water and sanitary waste disposal for low- and moderate-income rural Wisconsin communities. The Wisconsin RCAP provides comprehensive services and technical assistance to small, low- to moderateincome rural communities from problem-identification through implementation of acceptable, affordable solutions. RCAP services enable community staff to develop capacity to implement water, wastewater and solid waste projects and assist the community in coordinating efforts with consultants and government agencies. For further information visit the WISCAP webpage. Community Development Block Grant for Public Facilities (CDBG-PF) The Wisconsin CDBG Public Facilities Program is designed to assist economically distressed smaller communities with public facility improvements. Eligible activities include, but are not limited to, publicly-owned utility system improvements, streets, sidewalks, community centers. Federal grant funds are available annually. The maximum grant for any single applicant is $750,000. Grants are only available up to the amount that is adequately justified and 4-16

57 documented with engineering or vendor estimates. For more information on this program contact the Wisconsin Department of Commerce, Division of Community Development. Small Cities Community Development Block Grant (CDBG) Emergency Program The CDBG Emergency Grant Program is an emergency response program to help restore or replace critical infrastructure damaged or destroyed as a result of a natural or man-made catastrophe. Eligible activities include publicly owned utility system improvements, demolition and debris removal, streets, sidewalks, community centers and other community facilities. The Wisconsin Department of Commerce, Bureau of Community Finance should be contacted for further information. Wisconsin Fund The Wisconsin Fund grant program provides financial incentives to qualified Dodge County residents who replace their failing private onsite wastewater treatment system (POWTS). A failing POWTS is one which causes or results in any of the following conditions: The discharge of sewage into surface water or groundwater. The introduction of sewage into zones of saturation which adversely affects the operation of a private sewage system. The discharge of sewage to a drain tile or into zones of bedrock. The discharge of sewage to the surface of the ground. The failure to accept sewage discharges and back up of sewage into the structure served by the private sewage system. To qualify for a Wisconsin Fund grant, one must own and occupy a residence in Dodge County with a failing POWTS. After a sanitary permit is obtained, the applicant must complete a simple application and provide evidence of total income. More detailed restrictions do apply. Visit the following Wisconsin Department of Commerce website for more information:

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59 5. Agricultural, Natural and Cultural Resources 5.1 Introduction Wisconsin s natural resources are facing significant threats due to increasing human demands by a growing state population. Conversely, our natural resources generally do not increase to meet the extra demand. Unplanned or poorly planned development patterns in the last several decades, coinciding with population growth, have increased demand for water, land, and raw materials. Rural landscapes are being transformed by a demand for healthy country living, sometimes to the detriment of established neighborhoods and communities. This rural migration along with the expansion of the urban fringe, forces local governments to consider expanding their services to meet the demands sometimes costing more than will be recovered in new tax base revenues. There are many state and some federal regulations designated to protect Wisconsin s natural resources. Some state laws, including those for floodplains, shorelands and wetlands, establish minimum use and protection standards that must be adopted and administered by local governments. But not all natural resources are protected by state law. Local governments throughout the state have the flexibility to plan for and develop their own local ordinances to deal with the unique land use issues/conflicts in their community and to protect the natural resources that they value most. The : Inventory and Trends Report inventoried all of the agricultural, natural and cultural resources that are present within Dodge County. This element provides more detailed information regarding some of the most unique and important resource features within the county as well as specific goals, objectives, policies, recommendations and programs that will be used to guide the use, protection and preservation of these resources within the unincorporated areas of the County over a 20-year planning period. 5.2 Agricultural, Natural and Cultural Resources Summary and Trends The agricultural and natural resources found within Dodge County vary greatly depending on location. Most of the County s agricultural and natural resources result from the many glacial features and deposits throughout the County. Almost 90 percent of the entire County area is comprised of agricultural and other resource uses. The two most prominent natural resource features in the county include the very flat, marsh areas, including the Horicon Marsh and Mud Lake Marsh, and the Niagara Escarpment. As a result of extensive glacial deposits throughout, over 83 percent of the soils in the County are classified as prime agricultural soils. (See Appendix A Map 5-1). The majority of the county has a gently rolling terrain with approximately 400 feet of elevation change from the highest points in the northeast (over 1,200 elevation) to the lowest points in the southwest. 5-1

60 The County s glacial history has resulted in a poorly developed drainage system with numerous shallow lakes and wetland areas. Most of the county lies in the Rock River Basin which includes 14 individual surface watersheds (See Appendix A Map 5-6). Surface water, i.e. lakes, rivers, and streams, account for 4 percent of the area in the County in 31 different lakes, including Beaver Dam Lake, Fox Lake, Lake Sinissippi, and Lake Emily, and 50 rivers and steams, including the Rock River, Crawfish River, and the Beaver Dam River. Approximately 20 percent of the county is covered in wetlands and over 24 percent of the County lying within the 100-year floodplain. (See Appendix A Map 5-4 and 5-5 for wetlands and floodplain areas in the County). Only 3 percent of the County covered in small, widely scattered wood lots (See Appendix A Map 5-3). Most of these features are located together or in close proximity and comprise the environmental corridors located throughout the County (See Appendix A Map 5-7). The County s environmental corridors also include many wildlife habitat areas that are particularly accommodating to waterfowl. In addition to hundreds of thousands of geese that migrate to the Horicon Marsh each spring and fall, the county s numerous marshlands are home to ducks, herons, egrets, and swans. The county also has an excellent pheasant habitat. Dodge County is also home to a variety of song birds and the typical upland animals of southern Wisconsin, including deer, rabbit, fox, raccoon, squirrel, and muskrat. The Wisconsin Department of Natural Resources identifies State Natural Areas as tracts of land in a natural or near natural state and which are managed to serve several purposes including scientific research, teaching of resource management, and preservation of rare native plants and ecological communities. There are four State Natural Areas in Dodge County including Four-Mile Island Rookery, Waterloo Prairie, Mayville Ledge Beech-Maple Woods, and Neda Mine. The single-most significant natural resource feature in the County is collectively known as the Horicon Marsh ; comprised of the Horicon National Wildlife Refuge and Horicon Marsh Wildlife Area. These two protected wildlife areas make up the largest freshwater cattail marsh in the United States. The Green Bay Lobe of the Wisconsin glacier formed the Horicon Marsh during the last Ice Age more than 10,000 years ago. The glacier left behind a shallow, 50-square mile lake as it receded. Over time, this lake and the deposit of silt and organic materials reduced the depth of the basin. After many years of damming, ditching, and draining in an attempt to alter the marsh, the Wisconsin Legislature passed the Horicon Marsh Wildlife Refuge Bill in 1927 for the restoration of the Marsh including land acquisition and dam construction to re-flood this drained wetland. Today, the Horicon Marsh covers about 32,000 acres, making it the largest freshwater marsh in the upper Midwest. There are 29 sites on the Wisconsin State Register of Historic Places (See Appendix A Map 5-8). There are 14 libraries and 15 museums in Dodge County. Further details on all of the agricultural, natural and cultural resources in Dodge County are presented in the : Inventory and Trends Report. 5-2

61 The following are anticipated trends in regard to agricultural, natural, and cultural resources in Dodge County for the planning period. The number of farms will continue to decline. The size of the average farm will continue to show moderate increases. Pressure to convert farmland to other uses will increase. The number of dairy farms will continue to decline. Dairy herd sizes will continue to increase. Dairy herd production will continue to increase. The number of large commercial type farming will increase, especially dairy. Interest in farmland preservation programs will decrease. Interest in cash cropping will increase. Interest in specialty farming will increase. Interest in value-added businesses to complement small dairy and general farming operations will increase. Large dairies required to obtain Wisconsin Point Discharge Elimination System (WPDES) permits will increase. Interest in using lakes and rivers for recreational purposes will continue. The county s river fronts, woodlands, and highland areas will be desired as residential building sites. Challenges to groundwater resources will grow including increasing quantity of withdrawal and increasing potential for contamination sources. Highway expansion and increased traffic will have a negative impact on air quality. The recognized value of historic and cultural resources will grow, demanding more attention be given to their preservation. 5.3 Farmland and Agricultural Analysis Agriculture and farmland is central to the culture, economy, and landscape of Dodge County. According to the 2002 Census of Agriculture, the amount of land in farms in Dodge County decreased 2% from 410,651 acres in 1997 to 404,054 acres in 2002 for an annual average decrease of 1,319 acres/year. For the same period, the average size of farms increased 4% from 197 acres in 1997 to 205 acres in The number of farms decreased 6% from 2,085 farms in 1997 to 1,968 farms in Further information on farmland and agricultural trends and overall influence in Dodge County is further detailed within the Dodge County Year 2030 Comprehensive Plan: Inventory and Trends Report, particularly within the Agriculture, Natural and Cultural Resources element as well as within the Land Use element. Similar trends can be found in many Wisconsin counties. Refer to Chapter 6, Economic Development, for further detail on the economic impacts of agriculture in Dodge County. Agriculture not only produces food and fiber, but is also important to Wisconsin s culture and heritage. Barns, cows, fields, and silos paint the scene that so many define as Wisconsin s rural character. Farm families include some of the earliest settlers of many areas and provide a sense 5-3

62 of continuity to a community. Public opinion surveys conducted by the American Farmland Trust, the U.S. Department of Agriculture, the American Farm Bureau, Wisconsin counties, and other local units of government show that Wisconsin citizens place a high value on the presence of agriculture and agricultural lands. Agriculture is therefore linked not only to the economy, but the social and cultural heritage of a community. Agriculture is also connected to other land uses and issues. The interaction between farms and rural residential development has impacted land values, property taxes, and the right to farm. The distance from farm related services, markets for farm commodities, processing industries, and other critical land uses can determine the long term success of an agricultural area. Agriculture is also linked to transportation issues. Agriculture brings large vehicles to rural roads including farm equipment and heavy trucks. These rural roads are rarely constructed to handle the size and weight of such large vehicles. This often contributes to traffic issues, the posting of weight limits, and increased local expenditures for road maintenance. 5.4 Historical and Cultural Preservation Tools There are a number of legal tools the county and municipalities within the county can rely upon for advancing a historic preservation effort. There are laws, both federal and state, that protect cultural resources from the effects of projects that have federal, state or local government involvement. Which law that applies will depend upon which level of government is primarily involved in funding, permitting or licensing the project. The primary laws include Section 106 of the National Historic Preservation Act and Wisconsin Statutes 44.40, and (21). Having a property listed in the State or National Register is one way to preserve and promote a location as well as provide community education about its significance. Any person may nominate a property to the Register by submitting a completed and documented nomination. This process should be further examined and possibly pursued for some of the Architecture and History Inventory (AHI) sites located within the county. The State Historical Society of Wisconsin suggests filling out a National Register questionnaire and submitting it to the Society so that a written opinion can be provided on the eligibility of a site in the National Register. Town governments have the authority in Wisconsin to preserve their historical heritage primarily by the authority granted in Wisconsin Statutes section The statute states, in part, that The town board, in the exercise of its zoning and police powers may regulate any place, structure, or object with a special character, historic interest, aesthetic interest, or other significant value for the purpose of preserving the place, structure, or object and its significant characteristics. The statute also gives the town board the authority to create a landmarks commission to designate historic landmarks and establish historic districts. Landmark designations can simply be honorific or a more powerful regulatory tool for promoting or preserving cultural or historical resources within a community. If a community creates a landmarks commission or historic preservation ordinance, local landmarks of significance could be designated. The ordinance or commission would need to determine how sites are designated, how they will be promoted or how the community will become educated about them and procedures for regulating sites including such things as alterations or demolition. 5-4

63 Any regulations or ordinances that would be developed need to be coordinated with other ordinances as well as subdivision controls or any other land use regulations or incentives. Several of the historical sites found in the county are privately owned. These sites are eligible for a number of state programs and may be eligible for historic preservation tax credits. The State Historical Society should be contacted for specific details and program eligibility requirements. Other options that could be pursued to preserve historical and cultural resources include, but are not limited to, the development of an easement program, direct acquisition, willing of properties upon the death of the owner or the development of a revolving loan fund. Overall, if a community should decide to become more active in the preservation or rehabilitation of its historical or cultural resources there are a number of legal and funding sources that could apply. Each community should become familiar with these resources and build relationships with neighboring communities or local groups and stakeholders that would be interested in pursuing a cooperative effort. 5.5 Agricultural, Natural and Cultural Resources Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Agricultural, Natural and Cultural Resources element. Goal: Protect and preserve the County s best agricultural farm land. Goal: Protect, preserve and enhance the County s natural, historical and cultural resources. Objectives: 1. Identify, preserve and protect a system of environmental corridors consisting of rivers and creeks, WDNR mapped wetlands, publicly owned parks, recreation and conservancy lands, slopes over twelve percent and contiguous woodlands. Protect the integrity of the system from negative development impacts to retain desirable features of the County. 2. Identify and acquire areas of upland woods that are threatened by development pressures, valuable natural and historical areas, and areas adjacent to lands and rivers of 100 acres or more. 3. Protect the Horicon Marsh as a valuable natural resource and tourist attraction. 4. Control development in areas that possess valuable natural resource characteristics and wildlife habitats. 5-5

64 5. One hundred-year floodplains within urban service areas should be acquired as additions to the municipality s park and open space system. 6. Develop stormwater management plans and erosion control efforts to protect the surface and groundwater resources in high growth areas. 7. Designate areas where animal confinement facilities can be operated without conflicting with other forms of development. 8. Provide areas in the rural parts of Dodge County that are suitable for limited residential development which is designed to minimize adverse impacts on agriculture and maintain the rural character. 9. Focus new growth in areas that will not adversely impact prime agricultural areas of the County. Review new proposals for scattered rural development for potential impacts on scenic views, agriculture and open space and allow it only within areas considered appropriate for rural development. 10. Maintain the integrity of agricultural districts allowing for accepted agricultural practices. 11. Restrict non-farm development on prime agricultural soils, which are defined as Capability Class I, II, and III soils. 12. Land divisions for exclusively agricultural, conservancy or utility purposes, that involve no new residential or commercial construction, should be exempt from the A-1 Agricultural District minimum acreage requirements provided such lands are rezoned and restricted from any future nonagricultural uses. 13. Maintain agricultural preservation policies for land within urban service areas until such time as sanitary sewer service is available and the land can be rezoned and developed on public sewers or a negotiated boundary agreement redefining the urban service are is entered into between the affected incorporated municipality and town. 14. Maintain and periodically update an inventory of remaining historic and archaeological sites and structures throughout the County. 15. Assist local historical societies to preserve structures and artifacts that reflect Dodge County s past. 16. Seek grants from the Wisconsin Department of Natural Resources, other state and federal agencies, and investigate new revenue sources such as impact fees for the acquisition and improvement of outdoor recreation sites, open space and conservancy lands. 5-6

65 5.6 Agricultural, Natural and Cultural Resources Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Apply for tourism grants and other funding sources to acquire sites of historical significance under public ownership. 2. Provide grant writing and promotional assistance to local historical societies and Chambers of Commerce to help preserve and promote the cultural and historic resources of Dodge County. 3. Land currently under a Farmland Preservation Agreement should not be subdivided for non-agricultural purposes. The Farmland Preservation Program is intended to preserve farmland and should be respected if a landowner has entered it voluntarily. 4. Minimize the severance of agricultural parcels for highway improvement projects. 5. Discourage land subdivisions in prime agricultural areas which are not for the present or past farm operators. 6. Small pockets of untillable land largely surrounded by agricultural land should not be approved for residential development because future non-agricultural residents may be offended by agricultural practices and cause agriculture to be curtailed. 7. Adopt a uniform set of setbacks from all navigable streams, intermittent streams, lakes, ponds, flowages, drainage ways and wetlands and require a vegetative buffer area within such setbacks to trap silt and nutrients, slow the movement of stormwater, increase water filtration into the ground and provide wildlife habitat. 8. Protect woodlots of 25 or more acres from development to protect wildlife habitat. 9. Develop a set of guidelines and standards for structural development in areas with a soil depth of less than 60 inches to protect groundwater quality. 5-7

66 10. Establish performance standards for development in shorelands and drainage ways, and on areas with high bedrock and steep slopes. 11. Prevent development where water tables are normally less than three feet deep to protect groundwater quality. 12. Prevent structural development on FEMA 100-year floodplains in order to protect floodwater storage capacity and reduce property damage from floods. 13. Prevent development on archaeological sites containing burials and require deed restrictions on other property containing mapped archaeological sites to protect the archaeological significance of the site when development of such a site is approved. 14. Residential lots within agricultural areas should abut a public road for a distance of at least 66 feet. 15. Land to be developed for residential use in agricultural areas should have no more than 70 percent of the soils on the site rated as National Prime Farmland. 16. Residential development within agricultural areas should be approved by the affected town. 17. A minimum setback of 75 feet should be required from any Department of Natural Resources designated wetland. 18. Not more than ten percent of the natural vegetation should be cleared within 50 feet of any Department of Natural Resources designated wetland. 19. Developments requiring on-site sanitary systems or which would result in the building or paving of more than 25 percent of a parcel s surface area should not be permitted where the normal water table is less than three feet in depth. 20. Developments requiring on-site sanitary systems should not be permitted where the soil depth to bedrock is five feet or less. 21. Nature preserves, hunting and fishing preserves and wildlife ponds should be permitted in conservancy areas. 22. General farming, harvesting of wild crops and sustained yield forestry should be permitted in privately owned open space areas. 23. Public and private parks, trails, bridle paths and walkways should be permitted in conservancy areas. 5-8

67 24. Historic structures should be listed on the state register of historic places within State Statutes. 25. Each request for land division approval, conditional use permit approval and change of zoning should be reviewed for possible conflict with an archaeological site. 26. Erosion control plans should be required for any development on slopes between 12 and 20 percent. 27. Development on slopes in excess of 20 percent should be prohibited. 28. A minimum setback of 75 feet should be required from the normal high water mark of any navigable water body. 29. Not more than ten percent of the natural vegetation should be cleared within 50 feet of the normal high water mark of any navigable water body. 30. The County shall direct growth away from environmentally sensitive areas, such as environmental corridors, wetlands, and floodplains. 31. The County shall control the impact of new residential development in agricultural areas by establishing and enforcing density standards within the agricultural zoning districts. 32. The rate of runoff after development shall not be greater than the rate of surface runoff before development. 33. The County will continue to encourage prime agricultural zoning in targeted agricultural preservation areas in accordance with the state farmland preservation program. 34. New non-farm residential development should be discouraged on large tracts of productive agricultural land in areas of existing agricultural operations. 35. One-half of the proceeds from the County 0.5 cent sales tax should be used to fund County building/remodeling projects, while the other one-half should be used for property tax relief. Recommendations: 1. Consider funding a study of groundwater quality and quantity in order to identify if there are problem areas where growth should be limited. 2. Adopt and enforce a sliding scale density standard within the agricultural zoning districts in order to control the development of new non-farm residences. 5-9

68 3. Create and maintain an inventory of livestock farm operations, feedlots and manure storage facilities. 4. Use maximum impervious surface ratios (ISR) or minimum landscape surface ratios (LSR) to regulate the intensity of all new development. 5. Use public acquisition, dedication, or conservation easements in areas of critical environmental importance. 6. Create a map and database of historical and archaeological sites within the County s geographical information system. 7. Explore the creation of a private, non-profit land trust for Dodge County from County contributions, private donations and grants when available to be used to acquire key environmental, natural, and historic areas to protect them from development. 8. Conduct naturalist programs in the parks on a regular basis. 9. Provide incentives for farmers to leave unplowed and unfertilized buffers along drainage ways and wetlands. 10. Require deed restrictions on property containing mapped archaeological sites if development is permitted on the site. 11. Dodge County Planning, Development and Parks Department should apply for DNR grants that would be used for shoreland restoration projects. 12. Dodge County should evaluate the feasibility of making tax breaks for lake shore owners who comply with established shoreland preservation guidelines, e.g. natural land cover, maintaining a minimum buffer area, etc. 13. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to restrict and regulate the storage, recycling, disposal, injection and spreading of petroleum contaminated soil, commercial, industrial and other non-agricultural liquid and solid waste on any land in the county (excluding appropriately licensed and operated landfills or similar facilities). 14. Special zoning overlay district regulations should be established in the County Land Use Code as necessary for the protection and preservation (and in turn limited development) of linear corridors and other concentrated areas that contain and connect one or more of the following environmentally sensitive natural and cultural resource features: (revised based on previous CAC discussion to expand features included in environmental corridors ) 5-10

69 Navigable lakes, ponds, flowages, rivers, streams and vegetative buffers (up to 35 feet adjacent) Wetlands and floodplains Existing county, state and federal parks, preserves, hunting grounds and wildlife areas Woodlots (contiguous concentrations of 25 acres or more) Wildlife habitat areas Steep slopes and rugged terrain (having a grade 12% or greater) Shallow soil (less than 60 inches) Historic sites, structures and unique geologic features or landforms 15. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to regulate and ensure the reclamation of non-metallic mining sites throughout the county to the extent permissible and as authorized by Wisconsin Statutes. 16. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to provide for the protection and preservation (and in turn the limited use and development) of the following natural resource features as authorized by Wisconsin statutes: shoreland areas around all navigable lakes, ponds and flowages (1,000 feet) and all navigable rivers and streams (300 feet) DNR-designated wetlands FEMA and DNR-designated floodplains 5.7 Agricultural, Natural and Cultural Resources Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Agricultural, Natural and Cultural Resources Element of the Dodge County Year 2030 Comprehensive Plan. County Programs Dodge County Land Conservation Department The mission of the department is to promote and assist in wise land use decisions that preserve, protect and enhance the natural resources of Dodge County. The department consists of the County Conservationist (Department Head), an Engineering Technician II, a Conservation Planner, an Engineering Technician I and an Administrative Secretary. The department is responsible for providing technical, planning, and financial assistance to landowners of Dodge County in regards to soil and water conservation practices. The department implements state and local conservation programs such as the Farmland Preservation Program, the DNR Priority Watershed Program, the Land and Water Resource Management Program, the Animal Damage 5-11

70 and Claims Program, and the Animal Waste Management Ordinance. The department also assists in the implementation of the Shoreland/Wetland/Floodplain Ordinance. It is the responsibility of the Land Conservation Department and Committee to ensure that the county's natural resources are conserved. State Programs Lake Organizations The development of a lake organization is one way to help coordinate and fund protection, education, and improvement efforts for Wisconsin s local lakes. Wisconsin currently has the largest number of lake organizations in the nation. There are currently over 600 organizations in Wisconsin that include both lake associations and lake districts. The number of organizations has increased by 38 percent in the past ten years and continues to grow. There are three primary types of lake organizations in Wisconsin, the unincorporated lake association, qualified lake association (incorporated), and the public inland lake protection and rehabilitation district. They are described as follows: Unincorporated lake association: This organization is generally informal and has no legal guidelines or formal organizational requirements to govern operations. This type of organization may be desirable if informality is desired, there is a small membership and minimal activities, and if there is a limited budget. However, an unincorporated lake association can not hold title to real property nor is the organization eligible for lake planning and protection grants. Qualified lake association (incorporated): This organization is developed under Wis. Stats. 181 as a non-stock corporation. This status allows for the ability to hold a bank account, make contracts, and borrow money. This organization is also eligible for lake planning and protection grants. Formality in operations and organization structures is increased in comparison to an unincorporated association. 5-12

71 Lake protection and rehabilitation district: The most significant difference with this type of organization is its ability to tax property owners within its boundaries. A district, circumstances applying, may also regulate the use of the lake and adopt certain powers of sanitary districts. Districts are also eligible for lake planning and protection grants. This type of organization is desirable if an active role in lake protection will be pursued and long term planning is anticipated. Wisconsin Act 307 Notification to Nonmetallic Resource Owners This Act amends portions of the Wisconsin Comprehensive Planning Law to increase communication and notification of local planning with owners of nonmetallic mineral sites. Public participation procedures must now include written procedures describing the methods the local government will use to distribute proposed, alternative, or amended elements of a plan to owners of property, or to persons who have a leasehold interest in property, which may extract nonmetallic mineral resources on the property. This is only required if the comprehensive plan changes the allowable use or intensity of use of the given property. Wisconsin Act 307 also added provisions to the Comprehensive Planning Law detailing that prior to a public hearing written notice shall be provided to property owners or operators with an interest in nonmetallic mineral resources. County Conservation Aids Funds are available to carry out program of fish or wildlife management projects as per s (12), Wis. Stats. and NR 50, Wis. Adm. Code. Projects related to providing improved fish or wildlife habitat or projects related to hunter/angler facilities are eligible. Projects which enhance fish and wildlife habitat or fishing and hunting facilities have priority. Contact the WDNR for further information. County Forest Project Loans Funds are available for interest-free loans to counties with County Forest Law lands as per s (5)(bq) and (bs), 28.11(8)(b) and 28.11(90, Wis. Stats., and NR 47.70, Wis. Adm. Code. Counties having lands enrolled under the County Forest Law are eligible on applications provided by the Bureau of Forestry. Matching requirements are determined by the Department of Natural Resources based on an application and approved County board Resolution requesting the loan. Priorities are: 1) Land acquisition within the County Forest Boundary for lands to be entered under the County Forest Law; 2) Forestry Land Management activities; 3) Forestry Land Information; and, 4) Forest Capitol Improvements. Meritorious and economically productive forestry projects on County Forests are eligible projects. No wildlife or recreation projects are eligible. Contact Robert J. Mather at (608) for further information. Non-Point Pollution Abatement Program Funds are available to improve water quality by limiting or ending sources of nonpoint source (run-off) water pollution by providing financial and technical assistance to landowners, land operators, municipalities, and other governmental units. Governmental units within designated priority watersheds and priority lakes are eligible to apply. Eligible projects are watersheds and lakes where: 1) the water quality improvement or protection will be great in relation to funds expended; 2) the installation of best management practices is feasible to abate water pollution 5-13

72 caused by nonpoint source pollution; and 3) the local governmental units and agencies involved are willing to carry out program responsibilities. Efforts are focused statewide in critical watersheds and lakes where nonpoint source related water quality problems are most severe and control is most feasible. Rural landowners and land operators located in selected priority watersheds and priority lakes can contact their county land conservation departments to explain the program and have the landowner/land operator sign for cost sharing best management practices. Non-rural landowners and land operators can contact their municipal government offices. A watershed or lake project normally has a year time frame: two years for planning and eight to ten years to implement best management practices. Contact the WDNR Regional Environmental Grant Specialist for further information. Conservation Reserve Enhancement Program (CREP) Purpose is to reduce erosion, increase wildlife habitat, improve water quality, and increase forest land. Landowner sets aside cropland with annual rental payments based on amount bid. Practices include tree planting, grass cover, small wetland restoration, prairie and oak savannah restoration, and others. Eligibility varies by soil type and crop history. Contact the state Department of Agriculture, Trade and Consumer Protection (DATCP) for further information. Environmental Quality Incentives Program (EQIP) The purpose of EQIP is to provide technical and financial help to landowners for conservation practices that protect soil and water quality. Nutrient management and prescribed grazing are eligible for cost-sharing statewide. Assistance for other practices is available in selected priority areas. Approved projects are based on environmental value. Five to 10 year contracts are used. Agricultural producers may be eligible for up to 75 percent cost share on agricultural land. Public access is not required. Contact: USDA Natural Resources Conservation Service or Farm Service Agency, or County Land and Water Conservation Department. Wetlands Reserve Program (WRP) The purpose of WRP is to restore wetlands previously altered for agricultural use. The main goal is wetland restoration and wildlife habitat establishment. Land which has been owned for one year and can be restored to wetland conditions is eligible. Landowners may restore wetlands with permanent or 30-year easements or 10-year contracts. Permanent easements pay 100 percent of the agricultural value of the land and 100 percent cost-sharing; 30-year easements pay 75 percent of the agricultural value and 75 percent cost sharing; 10-year contracts pay 75 percent cost share only. Permanent or 30-year easements are recorded with a property deed. A 10 year contract is not recorded with deed. Public access is not required. Contact: USDA Natural Resources Conservation Service. Stewardship Grants for Non-profit Conservation Organizations Funds are available for the acquisition of land or easements for conservation purposes, and restoration of wildlife habitat. Non-profit conservation organizations are eligible to apply. Priorities include acquisition of wildlife habitat, acquisition of lands with special scientific or ecological value, rare and endangered habitats and species, acquisition of stream corridors, acquisition of land for state trails including the Ice Age Trail and North Country Trail, and restoration of wetlands and grasslands. Eligible types of projects include fee simple and 5-14

73 easement acquisitions and habitat restoration projects. Contact the WDNR for further information. Wisconsin Historical Preservation Tax Credits One of the benefits of owning a historic property in Wisconsin is the ability to participate in federal and state income tax incentives programs for rehabilitation of historic properties. There are currently three programs available to owners of properties that are either listed in, or determined to be eligible for listing in, the state or national registers of historic places. The three programs are: 1. Federal 20 percent Historic Rehabilitation Credit. 2. Wisconsin 5 percent Supplement to Federal Historic Rehabilitation Credit. 3. Wisconsin 25 percent Historic Rehabilitation Credit. The State Historical Society of Wisconsin, Division of Historic Preservation should be contacted for further information. Jeffris Family Fund This program was identified by the Wisconsin Historical Society as a good source of funding for historic preservation, particularly in rural areas. The Jeffris Family Foundation is dedicated to Midwestern cultural history and heritage through preserving regionally and nationally significant historic buildings and decorative arts projects. Founded in Janesville, Wisconsin in Because of its focus on preservation, the Jeffris Family Foundation provides challenge grants for preliminary studies, full restorations, and follow-up projects such as publications. The Foundation funds private nonprofit organizations and governments. Support from the Foundation typically ranges from 25 percent to 50 percent of the total project cost with a significant portion of the matching funds originating from the community. The primary focus is on projects in communities under 100,000 population. For additional information and a grant application, contact the Jeffris Family Foundation, P.O. Box 650, Janesville, Wisconsin Wisconsin Humanities Council, Historic Preservation Program Grants The Wisconsin Humanities Council and the Jeffris Family Foundation have formed a partnership pool to support Historic Preservation Program Grants. This Wisconsin Humanities Council (WHC) will award grants with funds from both groups. The WHC accepts proposals for projects than enhance appreciation of the importance of particular historic buildings or that increase public awareness of the importance of particular buildings or decorative art works in Wisconsin. Preference will be given to small town and rural communities with populations under 30,000. For more information contact the WHC, 222 South Bedford Street, Suite F, Madison, WI

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75 6. Economic Development 6.1 Introduction Economic development is an area of planning that can address many issues ranging from enhancing a community s competitiveness, a means of establishing industrial policy, a way of encouraging sustainable development, a tool to create jobs, increase wages and enhance worker training, and improve overall quality of life. All of these issues affect residents within a county and were addressed directly or indirectly in this comprehensive plan. The : Inventory and Trends Report identified and inventoried information regarding Dodge County s economic base and labor force. This element summarizes some of the economic characteristics and trends for the County as well as specific goals, objectives, policies, recommendations and programs that will be used to guide economic development within the unincorporated areas of the County over the 20-year planning period. 6.2 Dodge County Economic Summary and Trends Dodge County has a variety of economic features that make it unique in the State of Wisconsin. Some of these features can be considered assets while others are obstacles which Dodge County will need to face over the next twenty years. For detailed background information on the state of the economy in Dodge County refer to the : Inventory and Trends Report. Some of the most notable features of the Dodge County economy are detailed below. Labor Force Dodge County s labor force has generally decreased (-1.7 percent) since 2000 to a level of 47,773 persons in 2004 Unemployment within Dodge County has been consistently higher than the average for the State of Wisconsin since 2000 and was at 5.3 percent of the labor force in 2004 (compared to only 4.9 percent for Wisconsin) When compared to other counties in Wisconsin (22.3 percent), Dodge County has a greater percentage of it s workers (40 percent) who work outside of the county they live in. The majority of residents within the county had a commute to work of less than fifteen (15) minutes. The 1999 median household income for Dodge County was $45,190, slightly higher than the State s reported median income of $43,791. Approximately 6,600 more workers travel out of Dodge County for work than those that commute into the county for work. The largest number of commuters travel to Jefferson County (4,021), followed by Washington County (3,230), and Waukesha County (3,051). For those that travel to Dodge County to work, the majority commute from Fond du Lac County (4,401). 6-1

76 Economic Base Manufacturing had the greatest percentage (33 percent) of total employment in the County, similar to the State of Wisconsin (22 percent overall). Dodge County (5 percent) has a significantly higher percentage of total employment in the agriculture, forestry, fishing and hunting, and mining economic division when compared to the state (2.8 percent). Management, professional, and related occupations employ the greatest percentage of workers in the county, similar to the State of Wisconsin. As of 1999, annual average wages in Dodge County for all categories ($30,724) were less than the state annual average ($33,785). The three (3) largest employers in Dodge County in 2003 were: QuadGraphics; John Deere Works, and Beaver Dam Community Hospital. Construction and Manufacturing are the two categories that comprise the Dodge County economy that are considered basic employment areas that produce more goods and services than the county economy can use. Economic Development Trends and Outlook 1. The agriculture and manufacturing industries in Dodge County are and will continue to be the primary economic base for the county. 2. Tourism will increasingly add to the employment and economic base of the county. 3. Wisconsin s population is projected to grow slower and older than the nation as a whole, leading to lower participation rates in the workforce. Wisconsin is also having difficulty attracting international immigrants, domestic migrants, and retaining its own citizens. The aging of the population will have strong impacts on local demographics, employment patterns, and desired business and industry in the county. 4. Agriculture dominated the Dodge County economy until the mid-20th century, at which point, manufacturing became a major source of employment and income. Trade and services have begun to emerge as major economic components. 5. The composition of the labor force will change due to continued decreases in family size and the aging of the population. 6. Dodge County will likely continue to depend heavily on the manufacturing sector of the economy. International and national economic trends will continue to affect the manufacturers found in Dodge County. 7. Population disbursement in the county will continue to limit economic development in some areas. 6-2

77 8. Increases in automation and technology in manufacturing will change the existing manufacturing base and affect the labor force. 9. Tourism will likely increase as a factor in the county economy. 10. Dodge County will continue to be a desirable place to live, and transportation improvements will increase the ability of individuals to work outside the county resulting in increased population. 11. The service-based sector of the economy will continue to grow, particularly healthrelated services, as the population ages. For further information on the economic base, trends, and outlook for Dodge County refer to the : Inventory and Trends Report. 6.3 Economic Development Focus Group Summary The Dodge County Advisory Committee (CAC) selected economic development as one of the three (3) main topics they felt needed particular attention and consideration during the comprehensive planning process. On June 23, 2004, a panel of representatives from various state, county, and local agencies, elected officials, and other qualified experts was assembled to share and discuss their own thoughts, ideas, and experiences regarding economic development. The following panelists participated in the June 23, 2004, Economic Development Focus Group meeting: Dave Neuendorf, Dodge County UW-Extension Catherine Porter, Director, City of Juneau Community Development Authority (CDA) Trent Campbell, Vice President, City of Beaver Dam Economic Development Corporation Ken Stubbe, Vice President, Fond du Lac County Economic Development Corporation As a result of their discussion, it was generally agreed between the panelists and members of the public that Dodge County s most significant economic strengths include: location within the Madison-to-Milwaukee-to-Fox Valley triangle; the availability of low-cost, high-skilled labor with a solid work ethic; good quality schools, hospitals, natural resources, and an overall high quality of life. Conversely, it was generally agreed that Dodge County s most significant economic weaknesses include: 6-3

78 high taxes and uncontrolled spending; lack of a countywide economic development program and staff; high dependency on manufacturing. In terms of panelist recommendations, it was agreed that future economic development efforts and activities in the County should be focused in those communities where public facilities and services are already available and/or suitable for expansion and include: export businesses that make their product(s) within the county but primarily sell the product(s) to outside markets; businesses that provide a greater tax base, higher wages, and are a higher quality development; the expansion of existing businesses through the implementation of increased technology. Finally, it was generally concluded that Dodge County and all local municipalities should participate in the process of fostering increased economic development through: intergovernmental cooperation; community-driven committees and local leadership; public-private initiatives. 6.4 Agriculture Industry Analysis Manufacturing and agriculture are major portions of the overall Dodge County economy. Agriculture however, has a greater overall impact on land use because much of the success of agriculture is dependent on the land. The : Inventory and Trends Report provided extensive information on the agriculture industry in the county. Provided is some further information on the importance of agriculture to the county and what some of the latest trends are. In 2004 the University of Wisconsin Extension in coordination with other agencies compiled information detailing the importance of agriculture to the economy of the county. The following are some of the most notable findings: The amount of land in farms in Dodge County decreased 2% from 410,651 acres in 1997 to 404,054 acres in For the same period, the average size of farms increased 4% from 197 acres in 1997 to 205 acres in The number of farms decreased 6% from 2,085 farms in 1997 to 1,968 farms in In 2002, Dodge County ranked in the top 10 of counties in milk production. There were 43,000 milk cows in the county in 2001 and 42,500 in Dodge County consistently ranks in the Top 10 of all counties in the state in a number of agricultural production categories, including: 6-4

79 5 th in the total number of cattle and calves in 2003 with109,000 head 4 th for the production of corn for grain in th for winter wheat production in 2002 with 8,200 acres harvested and a production of 529,800 bushels 4 th in the production of corn for silage in 2002 with approximately 27,700 acres harvested resulting in a production of 405,700 tons. 4 th in the production of alfalfa as dry hay with approximately 40,900 acres in rd for 2,700 acres of green peas harvested in 2002 for processing. 3 rd in soybean production in 2002 with approximately 62,300 acres harvested and 3 million bushels produced. 5 th in production of sweet corn in 2002 with 5,300 acres harvested and 34,400 tons produced. Every new job in agriculture generates an additional 0.9 jobs in Dodge County. Dairy is the largest part of Dodge County s agriculture. Fifteen plants process dairy products in Dodge County. One dairy cow generates $2,167 in direct income to producers. Agriculture accounts for $1.41 billion in economic activity. Every dollar of sales of agricultural products generates an additional $0.39 of economic activity in other parts of the Dodge County economy. Agriculture is of vital importance to the economy of Dodge County and will continue to be over the planning period however, there will be challenges in the future. In most areas of the state the combination of a depressed farm economy, a strong non-farm sector, and increased urbanization has increased pressure on landowners to convert farmland to other uses. These trends have inflated land value and made it more difficult to enter farming or expand existing farms. Appreciated land values also enable existing farmers to realize larger financial gains when they sell their farmland assets. These are just a few of the issues Dodge County will deal with over the planning period. 6.5 Desired Business and Industry According to the Dodge County Economic Development Corporation (CCEDC), light manufacturing, machining, food processing and similar industries would be the most successful in the county and therefore are the desired types of businesses. These types of businesses have had longstanding success in Dodge County due to its strong agricultural base, location, and workforce. Certain types of businesses, such as large grocery stores or shopping complexes, may be desired by residents however such businesses would most likely not locate in the more rural areas of Dodge County nor would they be successful. Most local residents are also very loyal to local business owners and establishments. Overall, the basic services and products that are needed by residents are adequately being supplied by current businesses. Desired improvements may include providing more retail options, larger facilities, lower prices, and more convenient locations. 6-5

80 Due to the rural nature of Dodge County, desired businesses and industry should include light manufacturing, food processing and similar industries as well as continued support for small retail providers and basic services providers throughout the county as well as the location of any larger retail, services or shopping facilities to be located in an area of concentrated population yet easily accessible by a major transportation route. Diversification of the Dodge County economy over the next twenty years will become increasingly important. Over-dependence on the agriculture industry can have detrimental effects if agriculture faces lower than average markets for an extended period, the county is faced with weather/climactic obstacles, aging farmers begin to find it difficult to maintain operations, etc. Dodge County should pursue and possible seek out business and industry which can diversify its overall economy and encourage development of higher skills and thus higher wages of residents of the county. 6.6 Sites for Business and Industrial Development Having available and desirable business or industrial sites within the county is vital if business recruitment is a goal. Having sites available also allows for existing businesses to expand locally. For specific areas designated for business and industrial development in the county refer to the Land Use element. Dodge County Industrial Parks The location of the majority of future industrial development in Dodge County will occur within one of the many industrial parks located in the following cities and villages in Dodge County all of which having sites for further development: City of Beaver Dam City of Mayville City of Hartford City of Watertown City of Juneau Village of Hustisford Village of Randolph Village of Reeseville Village of Iron Ridge Village of Lomira The further development or recruitment of industrial and manufacturing firms in Dodge County will be closely linked to the availability of land within industrial parks, availability of infrastructure, and the availability and access to transportation routes. The county should continue to support the local development of these resources as a means to support local employment and the overall improvement of economic development for the county as a whole. 6.7 Economic Development Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Economic Development element. 6-6

81 Goal: Balanced land uses within all communities of Dodge County and enhancement of the urban areas necessary to sustain the economic stability of the County. Goal: Maintain, enhance, and continue to diversify the economy consistent with other county goals and objectives in order to provide a stable economic base. Goal: Enhance the quality of employment opportunities. Goal: Identify the productive farmlands in Dodge County and support their preservation and management as an important economic resource. Objectives: 1. Investigate existing and potential new economic development programs and policies in order to formulate strategies for sustaining and improving the economic stability of the County. 2. Increase efforts to retain existing manufacturers and to attract new ones. 3. Take steps to encourage a broader range of commercial and service businesses in communities throughout the County. 4. Expand the revolving loan program for business and industry. 5. Seek and implement new incentive programs that encourage industrial and commercial expansion. 6. Encourage and promote a healthy and sustainable agricultural economy through existing and new programs designed to support the farm economy. 7. Assist in promoting and attracting agricultural services and related industries to help keep agricultural production a viable business. 8. Promote ongoing dialogue between planning staff and economic development groups to ensure that economic development projects are consistent with plan goals and objectives. 9. Foster tourism that promotes the natural resource base and the unique historical heritage of Dodge County. 10. Encourage downtown revitalization to help enhance community character and business climate. 11. Develop an independent Dodge County Industrial Development Authority to provide economic development services not otherwise available through Dodge County government. 6-7

82 12. Develop networking opportunities to assist in transferring the ownership of existing businesses to successors. 13. Encourage local governments to establish or strengthen partnerships with community-based organizations to carry out economic development projects. 14. Cooperate with local Chambers of Commerce in the promotion of their communities. 6.8 Economic Development Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Focus the Dodge County Revolving Loan Program on job retention and expansion. Attempt to increase the amount of money available for business and industrial expansion through the County Revolving Loan Fund by raising the cap for retention of grant repayments. 2. Encourage and assist industrial and business leaders to create an independent Dodge County Economic Development Authority to recruit new business and industry. 3. Attempt to preserve and expand rail service in Dodge County as an economic development tool. 4. Promote the Dodge County Airport and existing railroads as economic development benefits for manufacturers. 5. Future economic development should be located in and/or directed toward areas within which adequate public facilities and services already exist, are programmed for expansion, or will be provided concurrent with development. 6. Future economic development should include export businesses that produce goods and services within the community but are sold primarily to outside markets. 6-8

83 7. Economic development programs and incentives should focus on development and businesses that include higher quality buildings and facilities, as well as, provide greater job opportunities with relatively high wages. 8. The retention and expansion of existing businesses should be supported through facility improvements and the implementation of increased technology. 9. The County will support economic development that provides services determined to be valuable to the County. 10. The County shall support efforts to maintain agriculture as a major component of the local economy. 11. Industrial and large scale commercial development should be steered to municipalities capable of providing sewer and water services. 12. Future businesses and industrial development in the County shall be reviewed for potential financial, service, and visual impact to surrounding landowners. 13. Commercial and Industrial development should be directed to those areas identified for such uses on the Comprehensive Plan Future Land Use Map. 14. The County should promote cooperation between all of the communities in the County on economic development related issues. Recommendations: 1. Continue to use the Advisory Committee on Economic Development and the U.W.- Extension office to recognize and resolve economic issues in the County. 2. Identify the types of industrial and commercial development that would be acceptable near the intersection of USH 151 and CTH A. 3. Identify the types of industrial and commercial development that would be desirable near the intersection of Highways 60 and Hire a County Economic Development Specialist in order to facilitate cooperation among all communities in Dodge County on economic development related issues. 5. Develop a program to improve central business districts. 6. Promote and expand the Business Retention and Revolving Loan Programs through informative brochures, the Internet, and other information outlets. 7. Distribute tourism information promoting the County. 6-9

84 8. Explore the possibility of a joint venture with the City of Juneau to create an industrial park adjacent to the Dodge County Airport. 6.9 Economic Development Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Economic Development Element of the. University of Wisconsin Extension Dodge County The purpose of the Community Resource Development Program (CRD), within the Dodge County UW-Extension, is to strengthen the ability of citizens, community and business leaders, and local government officials to identify and resolve crucial community needs and issues in three broad, interrelated areas--communities, natural resources, and economic development. For more information about Extension services visit Dodge County Economic Development Revolving Loan Program The Dodge County Planning and Development Department operates a revolving loan program for local businesses and industry. The Revolving Loan Fund program provides low-interest loans for proposed projects that will create new jobs, help businesses maintain or expand existing operations, and advance the county s economic development goals and objectives. The Fund is intended to provide financial incentive for business and industries to invest in their own growth by providing leverage. The funds, therefore, are meant to serve an important, secondary role to the private financing available. For further information contact the Dodge County Planning and Development Department. Dodge County Business Retention Program The Dodge County Planning and Development Department assists businesses in obtaining grant funding for business expansion and development. Activities that the grant money may be spent on include: feasibility studies, market research, attorney and accountant fees, business planning, engineering studies, developing training programs, and other required services. Wisconsin Agricultural Development Zone Program An Agricultural Development Zone has been established in five south central Wisconsin counties, including Dodge County. Agricultural related businesses are eligible for tax credits that can be applied against their state income tax liability. These credits are based on the number of new jobs that you create, the wage level, and the benefit package that you offer. Businesses may also be eligible for a 3% capital investment credit for real and personal property and a credit equal to 50% of your eligible environmental remediation costs. Community Development Block Grant for Economic Development (CDBG-ED) The CDBG-ED program was designed to assist businesses that will invest private funds and create jobs as they expand or relocate to Wisconsin. The Wisconsin Department of Commerce awards the funds to a general-purpose unit of government (community) which then loans the funds to a business. When the business repays the loan, the community may retain the funds to capitalize a local revolving loan fund. This fund can then be utilized to finance additional 6-10

85 economic development projects within the community. For more information contact the Wisconsin Department of Commerce. Wisconsin s Main Street Program The Main Street Program is a comprehensive revitalization program designed to promote the historical and economic redevelopment of traditional business districts in Wisconsin. The program was established in 1987 to encourage and support the revitalization of downtowns. Each year, the Wisconsin Department of Commerce selects communities to join the program. These communities receive technical support and training needed to restore their Main Streets to centers of community activity and commerce. For more information regarding the program go to or contact the Bureau of Downtown Development, Division of Community Development. USDA, Wisconsin Rural Development Programs The Wisconsin Rural Development Program has many services that are available to rural communities and their residents. Some programs and services available include: community development programs, business and community programs, rural housing and utilities services, and community facility programs. For more information visit the Wisconsin Rural Development web site at Agricultural Development Zone Tax Credits The Wisconsin Department of Commerce designated the north central Wisconsin region consisting of Barron, Dodge, Price, Rusk, Sawyer, and Taylor Counties as an Agricultural Development Zone (ADZ). This multi-county region is focusing on the promotion, creation, recruitment, and expansion of agribusinesses within this area. The zone will encourage agricultural business clustering. The cluster includes all the activities and/or operations involved in the growth, production, processing, manufacturing, distribution, wholesale, and retail sales of agricultural and food products. The zone is designated for ten years and commenced on January 1, Approximately $2.5 million of tax benefits may be claimed in the zone for the duration. Certified agribusinesses can claim tax credits against their Wisconsin income tax. Capital investment credit for real and personal property tax is 3 percent. Job creation and retention credit if available for up to $6,500 per job. Environmental remediation tax credits can be accessed for up to 50 percent of eligible expenses. Any unused tax credits can be carried forward for 15 years. For further information on this program contact the Dodge County Economic Development Corporation or the Wisconsin Department of Commerce should be contacted. Wisconsin Department of Commerce The Wisconsin Department of Commerce (WDOC) has several grant programs and services available to communities or businesses within communities. The federally funded Community Development Block Grant (CDBG) program can be used for housing, economic development, and public facility improvements. WDOC also offers many more business assistance and financing programs as well as economic development news and statistics. For more information regarding available WDOC services call (608) or visit their web-site at for a further list of programs and financial resources. 6-11

86 Forward Wisconsin Forward Wisconsin helps businesses looking for available sites or buildings through its website at Community Development Block Grant for Public Facilities for Economic Development (CDBG-PFED) The Public Facilities for Economic Development (PFED) program is designed to assist communities with expanding or upgrading their infrastructure to accommodate businesses that have made a firm commitment to create jobs and invest in the community. Eligible activities are those improvements to public facilities such as water systems, sewerage systems, and roads that are owned by a general or special purpose unit of government; that will principally benefit one or more businesses; and that as a result will induce businesses to create additional jobs and to invest in the community. The total amount of all CDBG-PFED assistance received by an eligible government may not exceed $1,000,000 per calendar year. The total amount of CDBG-PFED assistance that can be provided to benefit a single business or related businesses may not exceed $750,000. For more information contract the Wisconsin Department of Commerce, Bureau of Community Development. Community Development Block Grant for Economic Development (CDBG-ED) The CDBG-ED program was designed to assist businesses that will invest private funds and create jobs as they expand or relocate to Wisconsin. The Wisconsin Department of Commerce awards the funds to a general-purpose unit of government (community) which then loans the funds to a business. When the business repays the loan, the community may retain the funds to capitalize a local revolving loan fund. This fund can then be utilized to finance additional economic development projects within the community. For more information contact the Wisconsin Department of Commerce. Joint Effort Marketing (JEM) Grant Program The Joint Effort Marketing (JEM) Grant Program provides partnership funding to help non-profit organizations promote tourism and to maintain a strong tourism industry in Wisconsin. JEM is based on state statutes and administrative rules that govern its administration, and permit the department to conduct a matching grant program with local non-profit organizations on a cooperative basis. The program offers Wisconsin's tourism communities a variety of options to assist in the development of marketing initiatives. Contact the Wisconsin Department of Transportation for further information. Agricultural Development and Diversification (ADD) Grant Program The ADD grant program annually provides funding to projects that have the potential to bolster agricultural profits or productivity. The program funds proposals that are likely to stimulate Wisconsin's farm economy with new production or marketing techniques, alternative crops or enterprises, new value-added products, or new market research. The Wisconsin Department of Agriculture, Trade and Consumer Protection should be contacted for further information. Dairy 2020 Early Planning Grant Program The goal of the Dairy 2020 Early Planning program is to encourage and stimulate the start up, modernization and expansion of Wisconsin dairy farms. Eligible applicants for the Dairy

87 Early Planning program include existing and start-up dairy producers whose farms are, or will be located in a city, town or village with a population less than 6,000. Contact the Wisconsin Department of Commerce for further information. Town Tax Incremental Financing On April 13, 2004 Governor Doyle signed into law a bill that grants towns the authority to use tax incremental financing (TIF) for limited purposes. Wisconsin Act 231 creates Section of Wisconsin State Statutes called Town Tax Increment Law. Previously, a town s authority to use TIF was limited to environmental remediation projects. Towns are more restricted than cities and villages in the range of activities that may receive TIF benefit. The list of eligible activities for town TIF districts includes: 1. Agriculture. Defined as animal and crop production and direct support activities. 2. Tourism. Defined as camps, RV parks, campgrounds, dairy products stores and public golf courses. 3. Forestry. Defined as forestry, logging, and direct support activities. 4. Manufacturing. Defined as animal slaughtering and processing, wood product manufacturing, paper manufacturing, or ethyl alcohol manufacturing. 5. Residential Development. Limited to sleeping quarters within a TIF district for employees who work for employers engaged in an eligible TIF project. Residential development does not include hotels, motels, or general residential development. 6. Retail Development. Related to the sale of products produced as a result of the allowed agriculture, forestry, or manufacturing activities. At least 75 percent of the area of the TIF District must be used for projects of a single one of the allowable activities. To use TIF a town will need to establish a boundary for the TIF district that meets the requirements of the law. There are restrictions regarding the amount of value that may be placed within a TIF district upon its creation and the types of activities that may occur within the TIF district after it is created. The town will also need to prepare a plan for the district, called a project plan. A town cannot create a TIF district within the extraterritorial zoning jurisdiction of a city or village without obtaining approval from the city or village. Tax incremental financing can be an important tool for towns that want to get more involved in promoting agriculture or forestry-based economic development. There are a number of restrictions and issues however that must be carefully reviewed and considered by the town before a district is created. Wisconsin Value Added Dairy Initiative On August 16, 2004, Governor Jim Doyle announced $820,000 in grant money available to dairy producers and processors as part of his Grow Wisconsin initiative to re-invigorate dairy. The $820,000 in grants will target the following areas: 1. Grants of up to $50,000 for dairy businesses introducing new dairy products, entering new markets, or implementing innovations in their supply chain. Examples of types of projects might include launching a new product or product line, entering a 6-13

88 new or differentiated market for Wisconsin, or developing a system for reducing costs within the business supply chain. 2. Grants of up to $25,000 for local organizations proposing to improve business competitiveness of dairy farming in their area. Examples might include: creation of agricultural development zones that promote dairy farm development, creation of new systems to provide capital for dairy modernization, programs to match cash crop farms with dairy farms to enhance farm incomes. 3. Grants of up to $7,500 for dairy producers seeking professional services in modernizing their dairy facilities. Funds will be available both for developing a business plan to modernize a dairy facility, as well as implementing that business plan including professional service costs for risk management, financial management, engineering, and labor management. 4. Grants of up to $7,500 for dairy farmers transitioning to intensively managed grazing operations. Funds could be used for professional service costs for grazing system layout, parlor engineering, or financial planning. The $820,000 in grant money is part of the Wisconsin Value Added Dairy Initiative to reinvigorate dairy in Wisconsin. It is funded by two million in federal money matched by inkind contributions of agencies and organizations within Wisconsin s dairy sector. The rest of the four million Value Added Dairy Initiative funding will support: 1. The Dairy Business Innovation Center offering technical assistance to farmers and cheese processors for product development, business planning, or market development. 2. Grow Wisconsin Dairy Team coordinating and focusing resources for dairy farmers modernizing their businesses and processors looking to streamline the supply chain. For more information on the Wisconsin Value Added Dairy Initiative visit

89 7. Intergovernmental Cooperation 7.1 Introduction Intergovernmental cooperation is a necessity for all levels of government to operate in a cost effective and efficient manner while providing citizens with required services. The importance of intergovernmental cooperation has drastically increases in the last several years in Wisconsin, as well as the rest of the country, due to funding constraints and mandates to provide services and/or programs. Citizens demand a high level of service for their tax dollars and expect that the services will be provided in the most cost effective and efficient way possible. Intergovernmental cooperation can offer solutions to many of these issues and at a minimum should be pursued to allow for good governmental relations and a non-competitive environment. The : Inventory and Trends Report identified and inventoried information regarding Dodge County s economic base and labor force. This element summarizes some of the intergovernmental cooperation activities in the County as well as specific goals, objectives, policies, recommendations and programs that will be used to guide further cooperation between the County and its municipalities over the 20-year planning period. 7.2 Intergovernmental Cooperation Summary Dodge County is home to 44 municipalities (9 cities, 11 villages, and 24 towns) and 68 other units of government, including school districts, sanitary sewer districts, drainage districts, and lake protection districts. Most of the current intergovernmental cooperation efforts in the County are informal and involve communities working together or sharing facilities or services to meet specific needs generally on a short term basis. This may include borrowing of equipment or agreeing to snow plowing arrangements that are more efficient based on road locations. More formal intergovernmental cooperation provides some of the most basic services in Dodge County include fire, police, ambulance and rescue services. There are 25 different fire departments and/or fire associations as well as 16 emergency medical and first responder providers that serve more than one community with service area boundaries that cross over municipal and even county borders. Police service in Dodge County is provided by 18 departments in addition to the Dodge County Sheriff s Department. Dodge County and its municipalities have had significant success in facilitating and executing intergovernmental cooperation through both formal and informal agreements. To date, there is only one formal boundary agreement that exists between the Town of Emmet and the City of Watertown addressing timing of annexations, land use, street and storm water improvements, and revenue sharing. Intergovernmental Plan Building Process As a means to facilitate intergovernmental cooperation, the Dodge County multi-jurisdictional planning process utilized a regional meeting approach. This approach was used to assist in the development of local comprehensive plans and provide public participation in the development 7-1

90 of the. Five (5) regions were created from the 19 cities, villages and towns that participated in the multi-jurisdictional planning process (See Appendix A Map 1-2). The regions were arranged based on their relative location in the county; common features such as agriculture, highways and river corridors; and shared service areas for utilities and emergency services. A total of five (5) regional meetings were held as part of the planning process. Invitations were sent to all municipal officials, planning commission/committee members, County Board Supervisors, and County Advisory Committee (CAC) members. The use of the regional workshop approach within the Dodge County planning process provided an excellent forum for groups of local communities to discuss and resolve issues. The regional meetings allowed communities to discuss issues across jurisdictional boundaries and communicate resolution alternatives. 7.3 Analysis of the Relationship between Dodge County and Other Jurisdictions Adjacent County Governments Dodge County shares its borders with Fond du Lac, Washington, Waukesha, Jefferson, Dane, Columbia, and Green Lake County. Dodge County s relationship with adjacent counties can be described as one of mutual respect. Periodic contact is maintained on items such as county highway improvements and the administration of county programs such as planning, zoning and land information. Please refer to Section 7.4 of the Inventory an Trends Report for additional information on past and current planning efforts in those adjacent counties. Local Governmental Units There are 44 municipalities located at least partially in Dodge County. The 44 local municipalities consist of nine cities, 11 villages and 24 towns. Five of the municipalities (four cities and one village) are divided between Dodge County and another county. In the County, 19 of the 44 municipalities are participating in the development of the Dodge County multi-jurisdiction planning process. Of the remaining 25 communities, six have land use plans, six have comprehensive plans that are not Smart Growth compliant, six have Comprehensive Smart Growth Plans, and seven do not have any plans (See Appendix A Map 7-2). Relationship Dodge County s relationship with the local governmental units can be characterized as one of mutual respect. The county is often the neutral party in disputes or issues between municipalities. The county also serves as a source of information that is available to the local governmental units. 7-2

91 Siting and Building Public Facilities There is no formal process established for siting and building public facilities with local governments. Sharing Public Services County Departments such as the Planning, Development, and Parks Department and Highway Department offer services to those towns who seek additional assistance beyond the required level of service. Nine towns have adopted the County Land Use Code and the county administers the land use regulations in those towns. The Planning, Development and Parks Department also provides planning services for a fee to any municipality. Many communities have taken advantage of this service over the years. The County Highway Department installs driveway culverts and road name signs for those towns that choose to pay for such an additional service. The Highway Department also maintains all county highways found throughout the county. The Dodge County Sheriff s Department provides police protection and services throughout the county. Service is provided to all communities that are not served by a local municipal police department. Other county departments also offer services throughout the county including the Land Information Department and Land Conservation Department. School Districts Dodge County is served by a total of 19 school districts. Relationship Dodge County s relationship with the school districts can be characterized as limited. The school districts tend to operate rather independently and interaction with the county tends to be minimal. Siting School Facilities The siting of new school facilities is mainly conducted by the school districts. The county has historically had little input into the location of new school facilities. Sharing School Facilities No formal agreement between the school districts and Dodge County exist for the shared use of school facilities. However, school facilities have, on occasion, been used by the county to hold meetings. School recreation facilities are also often used by residents in proximity to school facilities. Region Dodge County is located in the south-central region of the State of Wisconsin. The county is not part of a regional planning commission. Dodge County has limited overall interaction at a 7-3

92 regional level, the majority of contacts and relationships are between Dodge County and a single neighboring county. 7.4 Intergovernmental Opportunities and Conflicts Potential Opportunities Numerous opportunities for service or program administration exist for cooperation within Dodge County. Several opportunities are described in Table 7-1: Table 7-1: Intergovernmental Opportunities; Dodge County Opportunity 1. Reducing costs for providing services through working with municipalities on such items as road maintenance and improvement, clean sweep events, parks and recreation services. Other Governmental Unit Assistance 1. Municipalities of Dodge County 2. School Districts 3. Dodge County Planning, Development and Parks Department 4. Dodge County Highway Department 5. Dodge County UW-Extension 2. Assistance in rating and posting local roads. 1. Municipalities of Dodge County 2. Dodge County Highway Department 3. Updating and amending local municipal comprehensive plans and/or ordinances when applicable. 1. Dodge County Planning, Development and Parks Department 2. Municipalities of Dodge County Potential Conflicts and Resolutions Several potential conflicts may develop through the course of the planning period. Potential conflicts can be most effectively addressed in a pro-active fashion. In other words, pursuing opportunities will often avoid future conflicts. Potential conflicts and the process to resolve the conflicts are summarized as follows: 7-4

93 Table 7-2: Intergovernmental Conflicts & Potential Resolutions; Dodge County Potential Conflict 1. Concern over unregulated land use in some municipalities negatively impacting other municipalities, landowners, and residents. 2. Concern over too much intervention by Dodge County and state relative to local control of land use issues. Process to Resolve 1. Meet with local town and municipal officials to encourage local land use planning efforts. 2. Dodge County Planning, Development, and Parks Department provide assistance to municipalities for planning and ordinance development. 3. Dodge County Planning, Development and Parks Department review and provide comments on draft local comprehensive plans. 1. Encourage municipalities to develop, update, and administer local land use ordinances and programs. 2. Maintain communication between the Dodge County Planning, Development and Parks Department and local municipalities on land use issues. 3. Ensure ample opportunities for public involvement during land use planning and ordinance development efforts. 3. Maintain the Right to Farm 1. Maintain the comprehensive plan and ordinances with adequate language to protect farming practices and avoid land use compatibility situations. 2. Amend and or adopt ordinances to allow for local input relative to the state s new livestock siting law. 4. Conflicts over land use and development in extraterritorial jurisdiction of cities and villages (See Appendix A Map 7-1). 1. Dodge County Planning, Development and Parks Department provide assistance to cities, villages, and towns on uses in extraterritorial areas, boundary agreement assistance. 2. Encourage communities to continuously discuss infrastructure and growth needs and plans. 7.5 Relationship with State Agencies Dodge County maintains relationships with a variety of state agencies and departments. The majority of these relationships may be characterized as regulatory in nature. Dodge County, acting as an arm of the state, must ensure enforcement of many state regulations and rules and therefore work with a variety of state agencies and departments on rule enforcement, compliance monitoring, and reporting. These types of relationships are most common with departments such as the Department of Natural Resources, Department of Revenue, Department of Health and Family Services, and Department of Justice. 7-5

94 Dodge County also maintains relationships with state agencies that are more related to program implementation. These programs can include goals to improve economic development, housing, natural resources, education, and cultural resources. These types of relationships are most common with departments such as Agriculture, Trade and Consumer Protection, Department of Commerce, State Historical Society, Department of Transportation, Department of Tourism, Department of Public Instruction, and the Department of Natural Resources. Overall, the majority of state agencies and departments have both a regulatory function and a program based or advancement and planning function. Dodge County has good working relationships with a number of state agencies that help to ensure the county s compliance with state regulations as well as the county s advancement in providing services to its citizens. Coordination with various state agencies occurred as part of the Dodge County comprehensive plan development process. The relationship with these agencies through planning includes, but is not limited to the following: Wisconsin Department of Administration (WDOA) The WDOA awarded and administered the grant to help fund the Dodge County comprehensive planning effort. The WDOA reviews each comprehensive plan funded for content relative to meeting the terms of the grant contract between the WDOA and Dodge County (the primary grant recipient). In addition to grant administration responsibilities, the WDOA also provides population and demographic estimates and projections for planning purposes. The WDOA is also responsible for the administration of various programs often utilized for plan implementation. The WDOA is also the State contact for land information modernization activity. Wisconsin Department of Transportation (WDOT) The Wisconsin Department of Transportation maintains several plans with statewide policies and recommendations regarding various aspects of transportation. Plan recommendations were consulted and incorporated into local comprehensive plans where applicable. For a list of WDOT plans reviewed, planned state projects, and available programs, please refer to the Transportation element of this report and the Inventory and Trends Report. Wisconsin Department of Natural Resources (WDNR) The Wisconsin Department of Natural Resources is responsible for implementing the laws of the state and, where applicable, the laws of the federal government that protect and enhance the natural resources of the state. It is the one agency charged with full responsibility for coordinating the many disciplines and programs necessary to provide a clean environment and a full range of outdoor recreation opportunities for Wisconsin citizens and visitors. Relative to the Dodge County comprehensive planning process, the WDNR provided natural resource information for such components as wetlands, surface waters, watersheds, groundwater, air quality, threatened and endangered species, wildlife habitat, and more. The WDNR also provided information on recreational activities and uses such as hunting and fishing. Opportunities to work collaboratively with the WDNR are numerous as the department maintains programs for shoreland management, nonmetallic mining reclamation, stormwater, public water supply, solid waste management, recycling, dam permitting, and much more. 7-6

95 Wisconsin Historical Society The Wisconsin Historical Society provided data for the Dodge County planning effort through its Wisconsin Architecture & History Inventory (AHI). Other State Agencies In addition to the above, the following state agencies also contributed data and other trend information towards the Dodge County comprehensive planning process: Wisconsin Department of Public Instruction (school enrollments and district information) Wisconsin Department of Commerce (economic information) Wisconsin Public Service Commission (information on public utilities) 7.6 Boundary Issues & Intergovernmental Cooperation Focus Group Summary The Dodge County Advisory Committee (CAC) selected intergovernmental cooperation as one of the three (3) main topics they felt needed particular attention and consideration during the comprehensive planning process. On July 26, 2004, a panel of representatives from various state, county, and local agencies, elected officials, and other qualified experts was assembled to share and discuss their own thoughts, ideas, and experiences regarding intergovernmental cooperation and boundary issues. The following panelists participated in the Intergovernmental Cooperation & Boundary Issues Focus Group meeting: Bill Nass, Chairman, Town of Emmet Gary Rogers, Administrator, City of Waupun Ron Sternat, Mayor, City of Mayville Curt Witynski, Assistant Director, League of Wisconsin Municipalities Brian Ries, President, Dodge County Fire Chiefs Association George Hall, Wisconsin Department of Administration Mark Halleen, Regionalization Coordinator, Foth & Van Dyke As a result of their discussion, it was generally agreed between the panelists and members of the public that the most significant barriers to greater intergovernmental cooperation within Dodge County include: past relationships between the local governments Wisconsin statute provisions that are unfriendly to town government the distribution of the costs necessary to provide public facility and services With regard to future actions aimed at fostering better cooperation between all units of government, including the County, towns, villages and cities, school districts, etc., the most popular recommendations included: 7-7

96 reducing the number of governmental entities in the county recognition and acceptance of the long-range goals of adjoining municipalities the identification and assessment of common services that could possibly be shared between different governmental units In terms of the current planning process, it was agreed that cooperation between the County and other units of government could be improved by: developing a consistent and compatible comprehensive plan that identifies where future non-farm and higher density development should be located improved and consistent decision making based on the goals, objectives, and policies set forth in the comprehensive plans being developed conducting a cooperative process to be used as a model for other non-participating communities to follow It was concluded that the County should play a major or leadership role in the process of facilitating intergovernmental cooperation between local units of government through: the collection and development of community information, tax parcel data, etc. proactive assessment and facilitation of potential service consolidation(s) between local units of government increased cooperation by Dodge County with other neighboring counties as a way of setting a good example 7.7 Intergovernmental Cooperation Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Intergovernmental Cooperation element. Goal: Intergovernmental cooperation among the county, cities, villages and towns. Goal: Establish mutually beneficial intergovernmental relations with other units of government. Goal: Coordinate and communicate planning activities with other communities in the county, and state and federal agencies to realize individual and shared visions, goals, and objectives; to address regional issues that cross political boundaries and jurisdictions; to ensure efficient use of resources; and to provide for increased certainty between all levels of government, developers, and landowners. Goal: Seek opportunities to enhance the provision of coordinated public services and facilities such as police, fire, emergency rescue, waste management, transportation 7-8

97 Objectives: systems (e.g., roads, bike/pedestrian routes, transit, parks, and recreation with other units of government. 1. Promote cooperation by providing the cities, villages and towns opportunities to comment on specific development proposals, land use plans and zoning changes. 2. Encourage incorporated municipalities and towns to enter into boundary agreements to address annexation and development issues within delineated urban service areas and assist these communities in the formation of such agreements. 3. Encourage communities to create intergovernmental cooperative agreements for services, governmental activities and programs wherever deemed appropriate. 4. Sponsor an ongoing forum in which cities, village and towns and the County can constructively discuss land use and zoning issues, especially the current issues facing those communities. 5. Create a more integrated code administration process whereby all affected political jurisdictions are afforded an opportunity to influence the outcome. 6. Provide County planning staff to serve as facilitators and educators to assist municipalities with ordinance administration and local plans to induce cooperation across levels of government. 7. Achieve cooperation and coordination between incorporated municipalities and adjoining towns with respect to long-range planning and land use regulations. 8. Encourage cooperative arrangements with the Wisconsin Department of Natural Resources for mutual benefits. 9. Work with the Wisconsin Department of Transportation (WisDOT) and other agencies to assure that transportation improvements are consistent with the goals and policies of the Comprehensive Plan. 10. Promote cooperative projects with area schools to educate and encourage participation in planning and land use among youth. 7.8 Intergovernmental Cooperation Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the 7-9

98 implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Seek and make use of opportunities for open communication and cooperation among all units of government in the County. 2. Encourage and support the creation of a regional planning organization including Dodge and surrounding counties to provide basin-wide stormwater management planning, regional transportation planning for air, rail and arterial highway systems, and other issues which cross county boundaries. 3. Coordinate activities and facilities of the County Park System with private, municipal, state, and federal agencies. Coordinate regular meetings of the representatives of park and recreation providers to exchange information and evaluate information needs and opportunities in the County. 4. The County shall support the development of Cooperative Boundary Agreements between communities in the County. 5. The County should continue to promote future cooperative planning efforts and continue to offer planning services to Dodge County communities. 6. The County will coordinate implementation of its comprehensive plan with the towns, cities and villages to avoid conflicting regulations and to minimize the duplication of services. 7. Before the purchase of new facilities or equipment, or the reinstatement of service agreements, the County should pursue options for trading, renting, sharing, or contracting such items from neighboring jurisdictions in order to provide services efficiently and save taxpayers money. 8. The County should work with the towns, cities, and villages to match land use plans and policies along municipal borders to promote consistency and minimize potential conflicts. 9. The County should encourage the adoption of common environmental protection standards between jurisdictions. Recommendations: 1. Offer technical assistance to support Town planning activities. 7-10

99 2. Allow county staff to facilitate the development of cooperative boundary agreements between municipalities. 3. Continue to provide staff reports for town land division requests for those towns who request them for no fee. 4. Propose boundary agreements between municipalities, act as facilitator for municipalities considering boundary agreements, and assist in drafting agreements to address annexation and development issues in urban service areas and to ensure consistency with the Comprehensive Plan. 5. Make each local government aware of Section of the Wisconsin Statutes, regarding cooperative boundary agreements, and Section 66.30, Wisconsin Statutes, regarding cooperative inter-governmental agreements and encourage their use. 6. Participate in County-initiated efforts to inventory and assess existing and future needs for public facilities and services as part of an overall program to identify public facilities and/or service that may be consolidated or otherwise provided in a more cost-effective and efficient manner in cooperation with other communities. 7. The Dodge County Planning, Development and Parks Department should conduct a countywide cost of community services study comparing the cost to provide community services vs. the amount of tax revenue generated by different land use and development types, e.g. single-family residential, multi-family residential, commercial, industrial, agricultural, conservancy, etc. and make this information available to all municipalities. 8. County shall coordinate the review of land division proposals for land within the extraterritorial platting areas of incorporated villages and cities with all affected municipalities. 9. See Section 7.4, Intergovernmental Opportunities, Conflicts, and Resolutions for other potential County actions. Local Options for Intergovernmental Agreements/Programs Joint Ownership Agreement Programs Local governments jointly purchase and share ownership of equipment that would be difficult for a single town or village to justify purchasing individually because of high cost and limited use. 7-11

100 Group Purchasing Agreements Local governments either buy goods in bulk or combine their bidding efforts to achieve unit discounts on materials and equipment. Resource Exchange and Sharing Agreements Local governments rent equipment from one another or purchase services through the use of a per mile maintenance fee; trade equipment or personnel use on an in-kind basis; or share resources to accomplish projects of mutual benefit, such as jointly repairing a stretch of roadway. 7.9 Intergovernmental Cooperation Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Intergovernmental Cooperation Element of the. Office of Land Information Services, Municipal Boundary Review Municipal Boundary Review regulates the transition of unincorporated areas to city or village status through municipal annexation, incorporation, consolidation, or by joint city-village-town activities involving cooperative boundary plans and agreements. Such agreements may change territorial boundaries and may provide for the sharing of municipal services. Staff members are available upon request to meet with local officials and citizens to discuss annexation, incorporation, consolidation and cooperative boundary plans. Contact the Wisconsin Department of Administration, for further information. UW-Extension Local Government Center The mission of the Local Government Center is to provide focus, coordination, and leadership to UW System educational programs for local government, and to expand the research and knowledge base for local government education. The Local Government Center maintains an array of information in regard to intergovernmental cooperation. For further information about the Center visit their website at Wisconsin Partnership The State of Wisconsin offers local government s contract purchasing, technical advice, data, and financial assistance to more efficiently provide government services. The State of Wisconsin offers a website, which is designed to put these state resources in the hands of local governments. The web-site offers a significant amount of information related to intergovernmental cooperation in Wisconsin. The website should be reviewed for further information. 7-12

101 Wisconsin Counties Association The Wisconsin County Association (WCA) is an association of county governments assembled for the purpose of serving and representing counties. The direction of this organization is one that is determined by the membership and the WCA Board of Directors consistent with the parameters set forth by the WCA Constitution. The organization provides up to date information on issues affecting counties in Wisconsin and offers opportunities for counties to share information. For further information on WCA visit their website at:

102 7-14

103 8. Land Use 8.1 Introduction Land use is a means of broadly classifying how land is used and how it could be used in the future. The Land Use element of the comprehensive planning process is typically the most emotionally sensitive and sometimes controversial to local residents and landowners. This is largely due to the fact that land use plans and private property owners rights are often intertwined and incompatible. The existing land use map is used to analyze the current pattern of development, and serve as the framework for formulating how land will be used in the future. County and municipal land use plans and regulations, private market demands, ownership patterns, and resource management programs all contribute to the character of Dodge County as it is known today. A primary function of the Land Use element in the comprehensive plan is to help guide future land use in a way that is compatible and desirable, and supported through public input. This requires the consideration of a range of ideas and opinions relative to land use, property rights, and local community attitudes toward land use and future development. In addition, many of the issues and trends facing Dodge County, as well as, a thorough description of the existing land uses and development patterns of Dodge County was detailed in the Inventory and Trends Report. This element summarizes land use characteristics and trends for Dodge County as well as specific goals, objectives, policies, recommendations and programs that will be used to guide future land use and development within the unincorporated (and municipal extraterritorial) areas of the County over the 20-year planning period. 8.2 Existing Land Use Summary By far the most prominent land use in the County in 2004 (89.7 percent of the total land area) is classified as agriculture and other resource lands (which includes wetlands and other open space areas). Surface water (3.5 percent), transportation (3.4 percent), residential development (1.7 percent), parks and recreation (.8 percent), and industrial uses (.5 percent) comprise the remaining types of land uses in the County in The amount of existing land uses by general type and distribution within the County are shown in Table 8-1 and on Appendix A Map 8-1, respectively. 8-1

104 Table 8-1: Existing Land Use, Dodge County, 2004 Percent Land Use Acreage of Total Residential 9, % Single family residential 9, % Two family residential % Multi family residential % Mobile home parks % Industrial and Quarries 2, % Commercial % Public and quasi public 1, % Transportation 19, % Parks and Recreation 4, % Communication and utilities % Surface water 19, % Agriculture and other resource land 501, % Total 559, % SOURCE: Dodge County Planning, Development & Parks Department; Projected Supply of and Demand for Land During the 20-Year Planning Period The Land Use element of the : Inventory and Trends Report details several key indicators on the supply, demand, and price of land for the county. This section provides further details on the projected demand for developed land by land use over the course of the 20-year planning period in Dodge County. Table 8-2 presents a projection of the total acreage that will be needed to support future development by residential, commercial, industrial, institutional, and agricultural land uses for five year increments through the Year 2030 in the unincorporated areas of the County. These future land use demand estimates are largely dependent on projected population increases and the amount of future growth and development within the unincorporated areas that is eventually annexed into the villages and cities. Therefore, these projections should only be utilized for general planning purposes in combination with other indicators of land use demand. 8-2

105 Table 8-2: Projected Land Use Demand (acres), Unincorporated Dodge County, Year Residential (1) Industrial (2) Commercial Institutional (3) Agricultural (4) ,600 1,179 2,357 25, , ,347 1,626 3,252 27, , ,136 1,999 3,997 29, , ,926 2,371 4,743 31, , ,715 2,744 5,488 32, , ,504 3,117 6,233 34, ,826 Avg. Annual Change: Acres: ,538 %: 10.0% 6.3% 6.3% 1.4% -0.3% (1) RESIDENTIAL includes single family, two family, multi-family, and mobile home parks. (2) INDUSTRIAL includes quarries. (3) INSTITUTIONAL includes public & quasi-public, parks & recreation, and communication & utilities. (4) AGRICULTURAL includes agriculture, surface water wetlands, and other resource land. 8.4 Future Land Use Plan The future land use plan is the primary component of the comprehensive plan that will be used as a guide for County and local officials when considering future development within the community. The plan is long-range and will need to be reevaluated periodically to ensure that it remains consistent with changing trends and conditions. The future land use plan is comprised of the Year 2030 Future Land Use map (see Appendix A Map 8-3) and the use and development policies set forth for each of the following standardized land use categories presented on Map 8-3: 1. Conservancy 2. Agriculture 3. Recreation 4. Single-Family Residential 5. General Residential 6. Commercial 7. Industrial 8. Utility & Community Facilities Pursuant to the smart growth comprehensive planning law, Section Wis. Stats., the Land Use element must specify the general location of future land uses by net density or other categories. To address this requirement, the land use categories described below were developed to allow the County and local officials the opportunity and flexibility to promote a desired pattern and density of land use in their communities and throughout the County consistent with County plans and ordinances for those communities under general County zoning jurisdiction, 8-3

106 or, consistent with their own local plans and ordinances in the case of those communities NOT under general County zoning jurisdiction. The Future Land Use categories are simply designated areas of consistent character, use, and density that share similar goals and objectives for future use, preservation and/or development. The Future Land Use Map will be used as a general guide to assist County and local officials when making decisions regarding the protection and preservation of the County s agricultural and natural resources and when considering specific development proposals. Decision and actions to allow specific types of development will be further guided by specific County ordinance and/or Land Use Code provisions established to further define and implement the general goals, objectives, policies, and recommendations of the comprehensive plan. It is important to point out that the Future Land Use Plan Map applies specifically to the unincorporated areas of Dodge County. The type, amount and distribution of land uses by category as depicted on the Future Land Use Plan Map are driven by or reflect the same land use type, amount and distribution of land use contained in the local comprehensive plans prepared by/for the twelve (12) towns that participated in the overall multi-jurisdictional planning process. For the remaining twelve (12) towns that did not participate, existing adopted land use plans for those towns (if any) and/or the land use plan contained in the County s 1999 Comprehensive Plan were used as the basis for the type, amount and distribution of land uses presented in the Year 2030 Future Land Use Plan map. This "bottom up" plan building process allowed those local units of government the opportunity to have direct input into determining the pattern and density of future development not only in their own communities, but also for the overall County. In the future, as local units of government develop and adopt comprehensive or land use plans or amend their existing plans, changes can be directly incorporated into Map 8-3. Future Land Use maps submitted by towns, villages and cities to the County shall only be amended in the Dodge County Comprehensive Plan Land Use element upon approval by the local unit of government. Likewise, for communities which have submitted plans to the county, changes to Map 8-3 in the Dodge County comprehensive plan should not be approved by the county until they are approved by the local unit of government. This protocol will preserve the true bottom up plan building process utilized as part of the development of the Dodge County comprehensive plan. Conservancy (Dark Green) Intent and Description These mapped areas include wetlands as designated by the WDNR. Agricultural activities such as crop harvesting and pasturing are recognized as acceptable activities in the Conservancy category. Development should not encroach on these areas other than for recreational purposes as allowed under applicable regulations. Uses identified as either an allowed use or a conditional use within the WL Wetland Zoning District of the Dodge County Land Use Code are considered to be consistent with the Conservancy land use category. 8-4

107 Policies & Recommendations: Agricultural activities such as crop harvesting, pasturing, and tree cutting are recognized as acceptable activities in the Conservancy category. Use of wetland areas and floodplains is encouraged for the purpose of passive, nonmotorized outdoor recreation opportunities, e.g. walking/hiking trails, wildlife movement, and overall character enhancement. Development should not occur within nor encroach on these areas other than for open space preservation, conservation or passive recreational purposes as may be allowed under applicable zoning regulations. Agriculture (Light Green) Intent and Description This category represents those areas where agricultural type uses such as dairy and crop farming are the anticipated predominant land use in the area. The Agriculture category could include a limited amount of residential development, but the predominant land use would be agricultural in nature. Housing for a farm operator or the son or daughter of the farm operator would be acceptable. A minimal amount of other non-farm land uses, e.g. wind energy systems, wireless communication facilities, dog kennels, veterinary clinics, mineral extraction, farmers markets, and wildlife ponds, etc., may also occur in areas planned for agriculture. Uses identified as either an allowed use or a conditional use within the A-1 Prime Agricultural or A-2 General Agricultural Zoning Districts of the Dodge County Land Use Code are considered to be consistent with the Agriculture land use category. Preservation of the County s agricultural areas, natural resources, surface waters, and open spaces was identified by the residents of the County to be a priority issue. Several strategies for achieving this goal have been identified and outlined in this plan. These strategies primarily include strengthening agricultural zoning and directing future development into surrounding areas that are served by sanitary sewer systems. Major subdivisions (those proposing to create five or more lots) and other similar large scale developments are prohibited in these areas. Policies & Recommendations: The proposed density of non-farm, residential development would be based on a slidingscale subject to the following: Single family residences would be considered an allowed use in the A-2 General Agricultural District; however, the density standard must be met. Newly created lots 8-5

108 in the A-1 Prime Agricultural District may need to be rezoned into the A-2 General Agricultural District due to the Farmland Preservation Program requirements. Land division approval would be required from the Planning, Development and Parks Committee. The County will require that a restriction be placed on the certified survey map or an affidavit be filed which would specify that no further divisions of the parent parcel or the lots created can take place for a period of 15 years after the maximum allowed density on the parent parcel is reached. The Planning, Development and Parks Committee may modify or remove the restriction from the certified survey map or affidavit after five (5) years if approved by the applicable town and if the purpose and intent of the Code would be better served. The town may recommend denial of any request to modify or remove the restriction if not consistent with their Comprehensive Plan. No maximum lot size should be imposed. Clustering is recommended for all new lots. A parent parcel shall be defined as a continuous quantity of land under one ownership, which has frontage on a public road. Navigable waterways and public roads serve as property dividers (definitions in Land Use Code). The density standards would not apply to land that is located within a public sanitary sewer district. The right to divide land is not assignable or transferable to other property owners. The Planning, Development and Parks Committee may remove a no further land division restriction from a property at any time if the land is rezoned out of an agricultural zoning district. A Development Concept Plan may be required by the County for all or part of the subject parent parcel even though further division is not planned at the time. Such Plan shall include future road locations as well as the location, number and size of potential lots allowed in the future under the Land Use Code. A Development Concept Plan is recommended if further development is anticipated. The plan will be useful in determining if the current proposed lot layout would be compatible with future lots and if future road right-of-ways need to be reserved. Site plan requirements are proposed to minimize the potential impact to prime soils and production farmland in the event of land conversions in the agricultural areas. A minimal amount of other land uses, such as but not limited to wind energy systems, wireless communication and utility facilities (but not transmission and distribution systems generating high electromagnetic field (EMF) emissions), veterinary clinics, mineral extraction, farmers markets, wildlife ponds, and businesses that primarily serve the agricultural industry may also occur in areas planned for agriculture, assuming all codes and ordinance requirements are met. Utilize existing state and county regulations to manage large commercial dairy or feedlot operations and to address such issues as operations, manure storage and handling, transportation and road impacts, residential conflicts, etc. 8-6

109 Recreation (Dark Blue) Intent and Description This category includes existing and future park and recreation land. Local, county, state, and federal recreation areas as well as privately owned recreation areas (golf courses, gun clubs, etc.) are included in this category. Wetlands that are located within a public or private recreation area will be placed in the Recreation category. Public parks, golf courses, gun clubs, fairgrounds and their accessory uses as well as uses identified as either an allowed use or a conditional use within the WL Wetland Zoning District of the Dodge County Land Use Code are considered to be consistent with the Recreation land use category. Policies & Recommendations: Existing park and recreation areas should be maintained and enhanced as necessary to contribute to overall community identity and outdoor recreation opportunities. Coordinate existing and planned recreational facilities through Dodge County s Comprehensive Outdoor Recreation Plan. Single-Family Residential (Yellow) Intent and Description This category represents those areas where single-family residential land uses already exist, or, where such uses are planned to be the predominant land use. The density of residential development may vary depending on applicable zoning, but only single-family housing is included in this category. Mobile home parks, attached condominiums, and other multi-family residential uses would not be categorized as single-family residential but as General Residential (see description below). Where agricultural uses occur in these mapped areas, it is anticipated that theses areas will become predominantly single-family residential over time. Uses identified as either an allowed use or a conditional use within the R-1 Single Family Residential Zoning District of the Dodge County Land Use Code are considered to be consistent with the Single Family Residential land use category. Policies & Recommendations: New single-family residential development should occur exclusively in the planned single-family areas as shown on the Future Land Use Plan map. Densities will be regulated by the County s Land Use Code under the current R-1 Zoning District provisions where a minimum lot area of 40,000 sq.ft. and a minimum lot width of 125 feet should be required for parcels outside of or not served by the sanitary sewer 8-7

110 district. Lots served by a sanitary sewer system could have a minimum lot area of 10,000 sq. ft. (1/4 acre) and 80 feet of lot width. Single-family residential neighborhoods should contain some form of buffering, e.g. landscaping, berming, screening, and/or additional building setbacks, between the residences and potentially incompatible land uses such as agricultural, commercial or industrial. General Residential (Orange) Intent and Description These areas include all types of residential uses, other than single-family residential. Multifamily structures including duplexes, attached condominiums, mobile home parks, and group living facilities are included in this category. Uses identified as either an allowed use or a conditional use within the R-2 Two-Family or R-3 Multi-Family Residential Zoning Districts of the Dodge County Land Use Code are considered to be consistent with the General Residential land use category. Policies & Recommendations: Densities will be regulated by the County s Land Use Code under the current R-2 and R- 3 Zoning District provisions. Commercial (Red) Intent and Description These mapped areas represent where commercial type land uses are anticipated in the future. Examples of uses found in this category include retail sales and services, eating and drinking establishments, financial institutions, professional offices, service and repair businesses, visitor accommodations, entertainment businesses, parking lots and day care facilities. Uses identified as either an allowed use or a conditional use within the C-1 General Commercial or C-2 Extensive Commercial Zoning Districts of the Dodge County Land Use Code are considered to be consistent with the Commercial land use category. Policies & Recommendations: New commercial development should occur exclusively in the planned commercial areas as shown on the Future Land Use Plan map. Densities will be regulated by the County s Land Use Code under the current C-1 and C-2 Zoning District provisions. 8-8

111 The County should develop minimum design standards which promote quality and aesthetics and do not detract from the community. Individual lot sizes may vary depending on the location and the services available. All commercial developments should be reviewed as part of a planned development area, including review of parking and access control. Intensive commercial activity in close proximity to residential development should be avoided. However, neighborhood convenience stores or services should be allowed in residential areas where precautions such as vegetative buffering are used to ensure that the quality and character of the neighborhood are upheld. Discourage the proliferation of large billboards and off-premises signs associated with commercial development in favor of smaller, less obtrusive signage. Industrial (Purple) Intent and Description These mapped areas represent where industrial type land uses are anticipated. Manufacturing and production facilities, resource extraction and processing, warehousing, transportation terminals, feed mills, and wholesale establishments are some of the examples of uses included in this category. Uses identified as either an allowed use or a conditional use within the I-1 Light Industrial or I-2 Industrial Zoning Districts of the Dodge County Land Use Code are considered to be consistent with the Industrial land use category. Policies & Recommendations: New industrial development should occur exclusively in the planned industrial areas as shown on the Future Land Use Plan map. Densities will be regulated by the County s Land Use Code under the current I-1 and I-2 Zoning District provisions. New developments should be subject to minimum building and site design, landscaping, signage, and outdoor storage provisions to encourage community character and sustainable developments. Proper access by industries to and from major traffic routes should be provided. Industrial development should also maintain adequate off-road employee parking, loading and unloading facilities, and should be buffered from intensive residential areas to reduce potential land use related conflict. 8-9

112 Reuse of existing vacant industrial property should be a priority when assessing new potential industrial uses. Commercial uses may be allowed in the Light Industrial category dependent on the location (lot configuration will not impede future lot layout or development of adjacent lands) and type of proposed use. Utilities and Community Services (Brown) Intent and Description This category includes all public and private utility facilities as well as those uses which provide a service to the community except parks. Land uses such as churches, cemeteries, post offices, libraries, nursing homes, assisted living facilities, prisons, airports, hospitals, town halls, police and fire stations, museums, and schools are some examples of community services. Utilities would include uses such as electrical substations, water wells, water towers, natural gas regulator stations, and waste water treatment facilities. 8.5 Designation of Smart Growth Areas A Smart Growth Area is defined as An area that will enable the development and redevelopment of lands with existing infrastructure and municipal, state, and utility services, where practicable, or that will encourage efficient development patterns that are both contiguous to existing development at densities which have relatively low municipal, state governmental and utility costs. Dodge County is predominantly a rural agricultural county heavily dependent on the dairy and manufacturing industries. With a year 2004 population of 88,285 and a total land area of 559,333 acres, Dodge County s population density is relatively low compared to other counties in the state. The county is home to 20 small incorporated municipalities (nine cities and eleven villages) with the largest population centers being the City of Beaver Dam (15,366 persons) and the City of Waupun (8,515). All of the incorporated municipalities act as service centers to the surrounding agricultural based rural towns providing most of their commercial and service needs. In addition, these incorporated communities provide almost all of the manufacturing employment opportunities and existing infrastructure. The arrangement of incorporated municipalities scattered throughout Dodge County s rural landscape, creates the perfect situation to practice Smart Growth. The Dodge County planning process and subsequently the Dodge County Year 2030 Comprehensive Plan is based on the following six principles as identified in the American Planning Association, Planning Advisory Service Report 479, The Principles of Smart Development. 8-10

113 Principle 1. Efficient Use of Land Resources Smart development supports the preservation of land and natural resources. A significant portion of Dodge County s designated future land use is agriculture, public resource, or private resource land. Within these designations residential development will continue to occur at low densities. Sensitive areas such as wetlands, floodplains, and contiguous woodlands are protected through the existing Dodge County shoreland/wetland zoning and floodplain zoning ordinances. Future development should utilize the existing road network and existing infrastructure to minimize additional local road maintenance costs and infrastructure development costs. Principle 2. Full Use of Urban Services Smart development means creating and maintaining neighborhoods where more people will use existing services like public water and sewers, roads, emergency services, and schools. The Dodge County planning process has identified areas within the county s cities and villages to accommodate growth and development. These growth areas will also be used to accommodate the more urban needs of towns in Dodge County. The support function of Dodge County s cities and villages as service centers to the surrounding rural farming area supports this principle. Principle 3. Mix of Uses Compact neighborhoods that contain a mix of residential, commercial, and recreational spaces within walking distance of each other promote a reduction in auto use, community identity, a variety of housing types, and a safe environment for all age groups. Dodge County s cities and villages contain a well-balanced mix of residential, commercial, and industrial development. A greater challenge for Dodge County communities is the promotion of growth in an attempt to create jobs through new industry and businesses. Populations residing in adjacent rural towns are also partners in supporting a variety of mixed uses within cities and villages. The high participation level of Dodge County villages and cities in the planning process protects the compatibility of mixed uses. Principle 4. Transportation Options A well-designed transportation network promotes safety, alternative modes of transport, and less traffic congestion and air pollution. Dodge County s rural nature does not contain the density to support a wide variety of specialized alternative modes of transportation such as public busing. Principle 5. Detailed, Human Scale Design In human-scale neighborhoods, a wide mix of housing types are clustered around one or more well-defined neighborhood centers, which support jobs, commercial activity, and a range of services. This principle was of limited importance in the Dodge County planning process due to the smaller size of incorporated communities (cities and villages) within the county. 8-11

114 Principle 6. Implementation A community s ability to adopt smart development principles will, of necessity, require intergovernmental cooperation to apply the principles. This plan recommends continued discussions and cooperation relative to land use planning and ordinance administration between Dodge County and those communities participating in the development of local plans. However, each community participating in the Dodge County planning process has chosen an implementation strategy which best fit their local needs. 8.6 Land Use Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Land Use element. Goal: Provide for a well-balanced mix of land uses within the County that minimizes potential conflicts between residential, commercial, industrial and agricultural land uses. Goal: Provide for urban and rural growth in an orderly manner that does not unnecessarily consume farmland or create conflicts with farm operations. Objectives: 1. Encourage development that promotes open space through site design and which fits within the character of the County as well as the specific location in which the development is proposed. 2. Restrict all forms of structural development or concentrated animal numbers on the 100-year floodplains based on Federal Emergency Management Administration (FEMA) maps, but encourage other forms of agriculture. 3. Environmental corridors within urban service areas should be treated the same with respect to zoning and land use regulations as environmental corridors elsewhere in the County. 4. Encourage a variety of land uses within the County in order to discourage land use disparities between communities. 5. Define urban growth areas around existing municipalities sufficient to allow reasonable municipal growth. 6. Require natural buffer area between incompatible land uses where such uses adjoin each other. 8-12

115 7. Explore the use of impact fees and other capital cost recovery mechanisms to assure that the cost of new development is not borne by the existing taxpayers. 8. Adopt tools for improving the efficiency and effectiveness of the zoning and development review process. 8.7 Land Use Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses and actions to the goals and objectives. Policies and recommendations become the tools that the county should use to aid in making decisions. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects are consistent with the policies, and therefore will help fulfill the comprehensive plan goals and objectives. Policies: 1. Establish linkages between park facilities and population centers for non-vehicular circulation by means of open space environmental corridors, trails or similar means by encouraging public acquisition of inactive railroad corridors, reviewing proposed highway projects for opportunities to provide extra right-of-way, and considering creating trails within active railroad rights-of-way. 2. Prohibit most structural development in areas identified as wetlands and other environmentally sensitive areas, and subject any proposed new structure in these areas to site plan approval to ensure the least impact on the environment. 3. Prohibit building, road construction or other land disturbances on slopes in excess of 20 percent, and apply construction site erosion control standards and a stormwater management program to non-agricultural development on slopes of 12 to 20 percent to control erosion. 4. Restrict animal confinement facilities outside the A-1 Agricultural Zoning District or rezone such sites to A-1 Agriculture if appropriate. 5. Require driveway access permits from the appropriate jurisdiction prior to considering any subdivision letter of intent, or the issuance of a Conditional Use Permit or Land Use Permit. 6. Limit residential development around the Dodge County Airport, especially in future expansion areas. 8-13

116 7. New non-farm residential structures and lots should not be allowed within 500 feet of operating agricultural facilities. 8. Fifty percent or more of the platted residential lots within one mile of a proposed major residential subdivision should be sold before approving a new residential subdivision. 9. New residential development should be consistent with town land use plans and city or village land use plans; if applicable. 10. The County may consider higher residential density development in areas designated as residential on the Future Land Use Plan Map. 11. A residential subdivision with more than four new lots being created shall not be considered consistent within the Agriculture future land use category. 12. The County should not be opposed to large agricultural operations that operate in accordance with the applicable state and county regulations. 13. New residential lots and building sites shall be located and designed to protect environmental corridors, wetlands, floodplains and productive farmland. 14. All development proposals shall meet the intent of the Future Land Use Plan classifications as described within the Land Use element. 15. Cluster residential development will be promoted to minimize land use impacts while accommodating development and green space. 16. If a Town has adopted density standards within their Comprehensive Plan or Land Division Ordinance that are stricter than the County s, any land division request that does not conform to the Town s density standard should be denied by the County. 17. Strict adherence to the Comprehensive Plan shall be required when rezoning. 18. Decisions on petitions to rezone land out of the A-1 Prime Agricultural Zoning District shall be based on findings which consider the following: Adequate public facilities to accommodate development either exist or will be provided within a reasonable time. Provision of public facilities to accommodate development will not place an unreasonable burden on the ability of affected local units of government to provide them. The land proposed for rezoning is suitable for development and development will not result in undue water or air pollution, cause unreasonable soil erosion or have an unreasonably adverse effect on rare or irreplaceable natural areas. The potential for conflict with remaining agricultural uses in the area. The productivity of the agricultural lands involved. 8-14

117 Recommendations: The location of the proposed district to minimize the amount of agricultural land converted to nonagricultural use. 1. Identify the types of industrial and commercial development that would be acceptable near the intersection of USH 151 and CTH A. 2. Identify the types of industrial and commercial development that would be desirable near the intersection of Highways 60 and Amend the County Land Use Code as needed to implement the Comprehensive Plan. 4. Provide a zoning map that matches the potential land uses with the characteristics of the land, not limited solely to soil characteristics. 5. Investigate the use of impact fees where appropriate to assist in financing land and water conservation measures resulting from new development. 6. Implement evaluation standards for review of development proposals in agricultural areas. 7. Establish minimum standards for the submission of town zoning amendments to the County Board and provide a system of review by the Planning, Development and Parks Department and Committee prior to inclusion of such amendments on the County Board agenda. 8. Provide buffer areas and screening to protect parks and recreation areas from adjacent development. 9. Amend the Land Use Code so that non-farm residences are considered to be allowed uses in the A-2 General Agricultural District, provided the density standards are met. 10. Revise the Dodge County Land Use Code in such a manner so that the current general zoning district regulations (excluding the overlay zoning district regulations) will not be enforced in the shoreland jurisdictional areas in those towns that have adopted their own zoning ordinance. 11. Special zoning overlay district regulations should be established in the County Land Use Code as necessary to restrict and regulate (to the extent permissible by state and federal regulations) the location, type, size, and potential impact associated with various industrial, commercial, and agricultural land uses and operations that have a high probability of generating regionally-significant economic, community, and environmental impacts, including, but not limited to: ethanol and other alternative fuel production plants, tire recycling facilities, new and/or expanded landfills, large-scale animal confinement facility, natural gas, electricity, and other 8-15

118 utility-related or power transmission lines and corridors, new and/or expanded prisons, etc. 12. Adopt and enforce a sliding scale density standard in County zoned areas within the agricultural zoning districts in order to control the development of new non-farm residences. Key provisions of the density standard regulations would include: Sliding scale density standard of: Parent Parcel Total Area (acres) # of Development Rights for New Non-farm Parcels < 2 acres 0 2 to 40 acres 1 40 to 80 acres 2 80 to 120 acres 3 > 120 acres 4 (maximum) Single family residences would be considered an allowed use in the A-2 General Agricultural District; however, the density standard must be met. Newly created lots in the A-1 Prime Agricultural District may need to be rezoned into the A-2 General Agricultural District due to the Farmland Preservation Program requirements. Land division approval would be required from the Planning, Development and Parks Committee. The County will require that a restriction be placed on the certified survey map or an affidavit be filed which would specify that no further divisions of the parent parcel or the lots created can take place for a period of 15 years after the maximum allowed density on the parent parcel is reached. The Planning, Development and Parks Committee may modify or remove the restriction from the certified survey map or affidavit after five (5) years if approved by the applicable town and if the purpose and intent of the Code would be better served. The town may recommend denial of any request to modify or remove the restriction if not consistent with their Comprehensive Plan. No maximum lot size should be imposed. Clustering is recommended for all new lots. A parent parcel shall be defined as a continuous quantity of land under one ownership, which has frontage on a public road. Navigable waterways and public roads serve as property dividers (definitions in Land Use Code). The density standards would not apply to land that is located within a public sanitary sewer district. The right to divide land is not assignable or transferable to other property owners. The Planning, Development and Parks Committee may remove a no further land division restriction from a property at any time if the land is rezoned out of an agricultural zoning district. 8-16

119 A Development Concept Plan may be required by the County for all or part of the subject parent parcel even though further division is not planned at the time. Such Plan shall include future road locations as well as the location, number and size of potential lots allowed in the future under the Land Use Code. A Development Concept Plan is recommended if further development is anticipated. The plan will be useful in determining if the current proposed lot layout would be compatible with future lots and if future road right-of-ways need to be reserved. 8.8 Land Use Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Land Use Element of the. State Programs Division of Intergovernmental Relations, Wisconsin Department of Administration The Division of Intergovernmental Relations provides staff support and administers the Wisconsin Land Information Program. It also houses Plat Review and Municipal Boundary Review, both of which have statutory authority for approval of specific land use related requests, and the GIS Services, dedicated to the efficient use of geographic information systems. For further information about the division visit the WDOA website at: UW-Extension Center for Land Use Education The Center for Land Use Education uses a team-based approach to accomplish its dual missions in campus based undergraduate and graduate education and Extension outreach teaching related to: land use planning, plan and ordinance administration, project impact and regional trends analysis, and public involvement in local land use policy development. For more information on the Center for Land Use Education visit its web-site at

120 9. Implementation 9.1 Introduction Just as the comprehensive plan does not work independently of other county documents, the Implementation element does not work independently of the other elements in the plan. In fact, the Implementation element is one of the best ways to demonstrate the integration of all the elements. Through implementation, the connectivity among county issues and opportunities, housing, transportation, utilities and community facilities, agricultural, natural, and cultural resources, economic development, intergovernmental cooperation, and land use is realized. Decisions should be made based on the knowledge that one decision can affect all the elements involved and there are direct and indirect effects of all actions. This element summarizes specific implementation actions and strategies as well as specific goals, objectives, policies, recommendations and programs that will be used to guide implementation of the comprehensive plan over the 20-year planning period. These actions may include, but are not necessarily limited to, proposed changes to the County Land Use Code and other County programs. 9.2 Implementation Strategy There are many tools a county can use to implement a comprehensive plan. Some are regulatory in nature and others are not. There is no one size fits all plan implementation program. Throughout Wisconsin each county s physical setting, economic climate, issues, public support, political climate, and leadership are different. Counties must weigh the cost/benefit of using certain tools since most require sufficient staff and financial resources to properly administer. Before a county considers any type of land use administration system, a blueprint representative of the public s desires should be established. Establishing the desires of county residents is important for several reasons. First, without public support, the success of a land use administration program is limited. The public must understand that the benefits of establishing programs or ordinances outweigh the potential risks future uses may present to the general public. Secondly, officials should rely on public policy as a basis to make future decisions. Without any type of public policy in which to base decisions, local officials run the risk of making decisions based their personal judgment or assessment. The following are two important steps that should be undertaken before any comprehensive plan implementation tool is put into effect. Develop a Comprehensive Plan Comprehensive plans establish the general policy framework for decision-making. The Land Use element of the comprehensive plan identifies areas targeted for a variety of different uses including agriculture, forestry, residential, commercial, and industrial. The adopted Wisconsin comprehensive planning legislation defines the elements of a comprehensive plan and requires that if a local government engages in official mapping, 9-1

121 subdivision regulation, zoning, or zoning of shorelands and wetlands then actions of that local governmental unit must be consistent with the comprehensive plan by January 1, Therefore, any local governmental unit that wants, for example, to regulate the subdivision of land or regulate land use through zoning or any other means is required to have a comprehensive plan. Adoption of this comprehensive plan by Dodge County meets the intent of the legislation since the county administers several land use regulatory ordinances. Citizen Participation Just as citizen involvement is an important step required throughout the planning process, it is also an essential implementation tool. Citizens and local officials must be made aware of the goals of their comprehensive plan when they consider and make decisions such as reviewing a land division requests. The more participation, the more ownership the plan or any implementation tool will likely receive. In addition, a public hearing is always required before an ordinance of any type can take effect. 9.3 Regulatory Land Use Management Tools Land use management tools stem from the county government s responsibility and authority to protect public health, safety, and welfare. Most tools are in the form of ordinances. The following tools currently utilized by Dodge County were reviewed and discussed as part of the comprehensive plan process: Conventional Zoning Under Wisconsin Statutes, counties, cities, villages, and towns with village powers are authorized to adopt zoning ordinances. Zoning is one method of implementing or carrying out the comprehensive plan. Zoning regulates the use of land, lot size, density, and the height and size of structures. A conventional zoning ordinance is probably the most commonly used land use implementation tool especially in villages and cities. Under conventional zoning, districts (defined areas of consistent use and density) are established which typically follow parcel boundaries and legal descriptions. Each district or zoning category contains a list of permitted and conditional uses which define rights within the district. In Wisconsin, towns are either under their respective county s zoning ordinance, administer their own zoning ordinance or do not administer zoning. Dodge County Status: Dodge County has adopted a Land Use Code which contains conventional zoning regulations that apply to nine (9) towns that have adopted general county zoning. The Land Use Code is also enforced within the shoreland areas of all towns. Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan, including establishing a density standard in the agricultural zoning districts. Timeline: Ongoing 9-2

122 Performance Zoning Performance zoning is a method that permits controlled development while also being sensitive to the landscape. It tries to regulate the impacts of land uses, rather than the uses themselves, by outlining general goals for developers that they can meet in different ways. Landowners are permitted a wide variety of uses, so long as they meet certain numeric standards such as a certain density, a certain amount of open space, or certain noise, smell or lighting level standards. Dodge County Status: The Dodge County Land Use Code does utilize performance standards for noise levels, lot coverage and lighting. Recommendation(s): No recommendation. Timeline: N/A Overlay Zoning Overlay zones allow special regulations within all or a portion of a zoning district or several districts. This type of zoning can be helpful if there is one particular resource that needs to be protected a consistent way, regardless of what district it is located in. Dodge County Status: The Dodge County Land Use Code contains 11 Overlay Zoning Districts. The Overlay Districts are as follows: Shoreland Wetland; Floodplain; Environmental Protection; Airport; Highway Setback; Planned Unit Development; Land Spreading of Petroleum Contaminated Soil; Wireless Communication Facilities; Sanitary Facilities; Wind Energy System; and Nonmetallic Mining Reclamation Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: Ongoing Extraterritorial Zoning Any city or village that has a plan commission may exercise extraterritorial zoning power in the unincorporated areas surrounding the city or village. The extraterritorial zoning power may be exercised in the unincorporated areas located within three miles of the corporate limits of a first, second or third class city, or within one and one-half miles of a fourth class city or village. Extraterritorial zoning may be initiated by a city or village adopting a resolution and providing notice of the extraterritorial area to be zoned. The city or village may unilaterally adopt an interim zoning ordinance to preserve existing zones or uses for up to two years while a 9-3

123 comprehensive zoning plan is being prepared. A joint committee, consisting of three city or village plan commission members and three town members must approve of the plan and regulations by majority vote. Extraterritorial zoning is not commonly used in the State of Wisconsin. Dodge County Status: In Dodge County, extraterritorial zoning power authority is exercised only by the City of Mayville in the Town of Williamstown Recommendation(s): Not Applicable Timeline: None Planned Unit Developments (PUDs) Planned unit developments (also sometimes referred to as planned development districts ) allow developers to vary some of the standards in local zoning ordinances to provide for innovative approaches that may allow for better design and arrangement of open space to protect natural resources. PUDs require flexibility from both the developer and local government. Dodge County Status: There is a Planned Unit Development Overlay District within Dodge County Land Use Code Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: Ongoing Land Division/Subdivision Ordinance Achieving the goals, objectives and policies of the comprehensive plan will be significantly influenced by how land will be divided and developed in the future. Pursuant to Section 236 of the Wisconsin Statutes, communities, by ordinance, could review the subdivision of land within its corporate limits. A land division ordinance is a tool to control how, when, and if rural farmland, woodlands, and open spaces will be divided and developed while protecting the needs and welfare of the community. It also regulates how new lots will be made ready for future development such as provisions for adequate access (required roads, driveways), wastewater treatment and water supply. The impact of land division regulations is more permanent than zoning (which regulates the type of development that takes place on a parcel) because once land is divided into lots and streets are laid out, development patterns are set. Local review and regulation of future divisions of land 9-4

124 can therefore be an effective tool to realize plan goals to maintain agriculture as a strong part of the local economy, protect natural resources, and retain rural character. A community can require a new land division be in conformance with their comprehensive plan as a basis of approval. The key to implementing this objective is twofold. First, the ordinance should clearly state that consistency with the community s comprehensive plan is a criteria of approval. Secondly, the ordinance should contain a provision requiring the proponent for a land division to submit a clear and concise letter of intent as part of the land division application. The letter of intent submitted as part of the application record can be used to decide if the lot proposed to be created will adequately accommodate the future use of the property. Development of a local land division ordinance could also incorporate "conservation design guidelines and standards to help implement the plan goals, objectives and policies supporting protection of the community s agricultural lands, and open spaces. Conservation subdivisions are intended to be an alternative approach to the conventional lot-by-lot division of land in rural areas which spreads development evenly throughout a tract of land without regard to the natural features of the area. The development and ultimate success of a local land division ordinance in plan implementation will require the community to address regulatory, administration, and intergovernmental considerations. Adoption of the local land division ordinance must be consistent with state statutes and will require local administration (e.g., application review, fee collection, public hearings, inspection, enforcement, etc.). Many rural unzoned communities which do not want to pursue traditional zoning often adopt a land division ordinance as a baseline needed to manage future uses. However, communities must remember a land division ordinance only affects new development, which requires a land division. New uses on existing parcels remain unregulated. Dodge County Status: Subdivision/land division regulations are contained in the County Land Use Code and are in effect in all unincorporated areas of the County Recommendation(s): Amend the subdivision/land division regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: Ongoing Extraterritorial Plat Review Cities and villages that have adopted a subdivision ordinance or official map can exercise extraterritorial plat approval jurisdiction for three miles beyond the corporate limits of a first, second or third class city and one and one-half miles beyond the limits of a fourth class city or 9-5

125 village. Specifics relative to Extraterritorial Plat Review can be found under Wis. Stats. S (5). Dodge County Status: Only cities and villages in Dodge County can utilize extraterritorial plat review. Recommendation(s): No recommendation. Timeline: None. Driveway Ordinance Driveway ordinances are developed to establish standards for driveways that will provide for safe and adequate access from private development to public right-of-ways, and also to maintain appropriate access spacing, access-point design, and total number of access points to public roads. In addition, a driveway ordinance provides an opportunity for local review to ensure that the driveway is providing proper access for such uses as a single-family residence which is consistent with the community s comprehensive plan. The term driveway is generally defined to mean private driveway, road, field road or other means of travel through any part of a private parcel of land or which connects or will connect with any public roadway. The ordinance typically only impacts new driveways or driveways which serve major land use modifications. Use of a driveway or access ordinance to regulate land use is limited but a significant number of towns throughout the state, due to the requirement to service existing development for emergency purposes (i.e. fire, ambulance), have adopted driveway ordinances. Dodge County Status: The Dodge County Land Use Code contains provisions that regulate the width and spacing of driveways Recommendation(s): Encourage towns with their own zoning and subdivision regulations to adopt driveway regulations consistent with the Dodge County Land Use Code Timeline: Ongoing Cooperative Boundary Agreements Cooperative boundary agreements can reduce some of the conflict regarding boundary issues, including annexation, that often arise between towns and their incorporated neighbors (cities and villages). The Legislature has provided express enabling authority for these agreements. The communities involved in such agreements undertake cooperative preparation of a plan for the areas concerned. The plan for changing or maintaining boundaries, and for controlling land use and services is sent to the Department of Administration. If the plan is approved, a contract binding the parties to it is put into effect. 9-6

126 Dodge County Status: In Dodge County, the only cooperative boundary agreement in effect is between the City of Watertown and the Town of Emmet. Recommendation(s): Investigate the possibility of providing assistance to communities interested and/or involved in entering into an agreement with an adjoining community Timeline: Ongoing Official Maps Cities, villages, and towns may adopt official maps. These maps, adopted by ordinance or resolution, may show existing and planned streets, highways, historic districts, parkways, parks, playgrounds, railroad rights of way, waterways and public transit facilities. The map also may include a waterway only if it is included in a comprehensive surface water drainage plan. No building permit may be issued to construct or enlarge any building within the limits of these mapped areas except pursuant to conditions identified in the law. Counties have limited official mapping powers. Counties may adopt highway-width maps showing the location and width of proposed streets or highways and the widths of any existing streets or highways which are planned to be expanded. The municipality affected by the street or highway must approve the map. Counties may also prepare plans for the future platting of lands, or for the future location of streets, highways, or parkways in the unincorporated areas of the county. These plans do not apply to the extraterritorial plat approval jurisdiction of a city or village unless the city or village consents. Official maps are not used frequently because few communities plan anything but major thoroughfares and parks in detail in advance of the imminent development of a neighborhood. Dodge County Status: Not Applicable Recommendation(s): Not Applicable Timeline: None Annexation Cities and villages have the power to annex given to them by the state. The power to extend municipal boundaries into adjacent unincorporated (town) lands allows a community to control development on its periphery. 9-7

127 Contrary to popular belief, annexation occurs at the request of town residents, not at the request of the incorporated municipality. Petitions for annexation are filed by the town landowners and the village or city acts upon the annexation petition. Wisconsin Act 317 Revisions to Annexation Procedures Under this Act which was enacted in April of 2004, no city or village may annex any territory if none of the city s or village s territory is in the same county as the territory to be annexed. The Act also requires cities and villages to make payments for five years to towns that lose territory due to annexations. Cities and villages will have to pay to the town from which the land is annexed the amount of the town tax for the annexed property. The Act gives an exemption from this payment for cities and villages that have boundary agreements with the neighboring towns. Dodge County Status: Not applicable Recommendation(s): Not Applicable Timeline: None Specialized Ordinances Given specific issues and needs within a particular community, a number of specialized ordinances maybe required to locally regulate public health and safety concerns, protect private property and avoid public nuisances. The following ordinances have received increased attention due to local issues. Right-To-Farm Ordinance Right-to-farm laws are designed to accomplish one or both of the following objectives: 1) to strengthen the legal position of farmers when neighbors sue them for a private nuisance; and 2) to protect farmers from anti-nuisance ordinances and unreasonable controls on farming operations. Most laws include a number of additional protections. Right-to-farm provisions may also be included in state zoning enabling laws, and farmers with land enrolled in an agricultural district may have stronger right-to-farm protection than other farmers. A growing number of counties and towns are passing their own right-to-farm legislation to supplement the protection provided by state law. The common law of nuisances forbids individuals from using their property in a way that causes harm to others. A private nuisance refers to an activity that interferes with an individual's reasonable use or enjoyment of his or her property. A public nuisance is an activity that threatens the public health, safety or welfare, or damages community resources, such as public roads, parks, and water supplies. Right-to-farm laws are intended to discourage neighbors from suing farmers. They help established farmers who use good management practices prevail in private nuisance lawsuits. 9-8

128 They document the importance of farming to the state or locality and put non-farm rural residents on notice that generally accepted agricultural practices are reasonable activities to expect in farming areas. Some of these laws also limit the ability of newcomers to change the local rules that govern farming. Local right-to-farm laws often serve an additional purpose: They provide farm families with a psychological sense of security that farming is a valued and accepted activity in their town. Dodge County Status: The Dodge County Land Use Code contains a right-to-farm section that is intended to protect and encourage the continued use and improvement of agricultural land. Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: None. Telecommunications Ordinance Ordinances can be used to minimize the visual effects of towers, maximize the capacity of existing towers and reduce impacts to adjacent properties. Local governments cannot unilaterally prohibit cell towers by ordinance, zoning or any other means. However, local governments can enact ordinances to prohibit towers from certain specially identified areas, regulate tower height, specify minimum setbacks, require collocation strategies, and encourage landscaping and disguising techniques. An important benefit of having a telecommunications ordinance is that it provides decision-making consistency and decreases the chances of discrimination against a particular company. The ordinance provides a basis for conditional use provisions or denials. The Telecommunications Act of 1996 requires all denials to be in writing and supported by sufficient evidence. Telecommunication ordinances seek to balance business and industry needs with community character, aesthetics and resident needs. Dodge County Status: The Wireless Communication Facilities Overlay District within the County Land Use Code regulates telecommunication towers Recommendation(s): No recommendation Timeline: None Nuisance Ordinance A nuisance can generally be defined as an action, or lack there of, which creates or permits a situation that annoys, injures or endangers the peace, welfare, order, health or safety of the public in their persons or property. Nuisance ordinances can be defined in many ways, depending what issues are present in the community. Possible nuisances include noxious weeds, storage of vehicles, odors, noise, signs, obstruction of streets, animals, fireworks and any number of related 9-9

129 type nuisances. Concisely defining nuisances as well as enforcement, abatement and recovery of costs for abatement are very important in the creation of a nuisance ordinance. A nuisance ordinance provides landowners and residents with a mechanism for identifying and preventing non-compliant situations. Authority for a town to engage on action to recover damages or abate a public nuisance are granted under Chapter 823 of the Wis. Stats. Although a town may pursue action through the State Department of Justice to prosecute the action, most Wisconsin municipalities pursue developing a local public nuisance ordinance because the statute does not specifically address all potential nuisance situations. Further, there are some practical but nevertheless important reasons for developing a local ordinance. They include: 1) the ability to set a minimum and a maximum forfeiture amount; 2) the ability to decide a protocol for providing notice and the time to cure or abate the nuisance; and 3) the ordinance can state that the unpaid bill for the cost of abating the nuisance can be placed on the tax bill as a special charge. Most public nuisance ordinances cover five (5) broad areas. They include: Noxious weeds Environmental health Morality (sexually oriented businesses) Public safety and peace Junk vehicle or equipment Dodge County Status: The County Land Use Code contains a section on operational compatibility standards and also regulates junk vehicles. Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: Ongoing Sign Ordinances A sign ordinance restricts the type, size, and location of signs within a community. It also often restricts the types of materials that can be used to construct signs. These ordinances can regulate signage to achieve a number of community values such as improved property values, public safety and glare control. Counties, towns, cities, and villages may all adopt sign ordinances and billboard regulations. Dodge County Status: Signs are regulated through the Dodge County Land Use Code Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan 9-10

130 Timeline: None Historic Preservation Ordinances The objectives of a comprehensive plan which note the need to preserve important historic structures and sites can be implemented through the adoption of a historic preservation ordinance. These ordinances are meant to protect historic buildings and districts. Counties, towns, cities and villages have express authority to enact historic preservation ordinances. In addition, the Wisconsin Legislature has determined that historic preservation is such an important objective that all cities and villages that contain any property listed on either the national register of historic places or the state register of historic places must enact an historic preservation ordinance to regulate historic or archeological landmarks and historic districts in an effort to preserve those landmarks. Dodge County Status: Dodge County has not adopted a historic preservation ordinance Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: 1-3 years Design Review Design review involves the review and regulation of the design of buildings and their sites. Design review standards are often included as part of zoning and subdivision ordinances. It seeks to protect communities from multi-family, commercial, industrial, and institutional development which would detract from the appearance of the community and reduce property values. Such an ordinance is especially recommended for communities with buildings of historic or architectural importance and where tourism is a major economic activity. Dodge County Status: Design review standards are included as part of the County Land Use Code. Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: 1-3 years Other Ordinances 9-11

131 Wisconsin Towns Association also recommends that all towns, villages, and cities should strongly consider adopting the following basic ordinances. Most of these ordinances are considered nuisance type ordinances. They include: 1. An ordinance to regulate specific adult-oriented establishments or operations (e.g., nude dancing). 2. An ordinance to regulate mobile homes and mobile home parks. 3. An ordinance on town board meeting procedures and town board administration of the community. 4. An ordinance regulating billboards. 5. An ordinance regulating events and large assemblages. 6. An ordinance to regulate fire control in fire regulation and reimbursement for fire costs. 7. An ordinance to regulate vehicle road weight limits, truck routes and other road uses. 8. An ordinance to regulate use of roadways by snowmobile, ATVs and horses. 9. An ordinance to regulate dogs running at large. 10. An ordinance to regulate unlicensed motor vehicles. 11. An ordinance to regulate land spreading of certain wastes. Dodge County Status: The Dodge County Land Use Code regulates billboards, mobile home parks, meeting procedures, large events, and land spreading of petroleum contaminated soils. Recommendation(s): Amend the zoning regulations in the Land Use Code to be consistent with and implement the policies and recommendations in the Year 2030 Comprehensive Plan Timeline: 1-3 years 9.4 Non-Regulatory Land Use Management Tools There are several non-regulatory options available to local municipalities to influence local land use. The following tools were considered as part of the planning process. Acquisition Tools Land Acquisition Communities and non-profit conservation organizations can acquire land for conservation purposes simply by purchasing it outright. This is recommended when public access to the property is required. Dodge County Status: The County has purchased land for park and recreational purposes in the past. Recommendation(s): The County should continue to consider developing a program to purchase and/or otherwise acquire land for public park and natural resource preservation purposes. 9-12

132 Timeline: Ongoing Conservation Easements Conservation easements limit land to specific uses and thus protect it from development. These voluntary legal agreements are created between private landowners (grantors) and qualified land trusts, conservation organizations or government agencies (grantees). Conservation easements may be purchased but are frequently donated by conservation-minded landowners. Grantors can receive federal tax benefits as a result of donating easements. Grantees are responsible for monitoring the land and enforcing the terms of the easements. Easements can be tailored to the unique characteristics of the property and the interests of the landowner. Easements may apply to entire parcels of land or to specific parts of a property. The easement is recorded with the deed to the property to limit the future uses of the land as specified in the easement. Land protected by conservation easements remains on the tax roll and is privately owned and managed. Dodge County Status: The County has not purchased or accepted conservation easements in the past. Recommendation(s): The County should pursue possible WisDNR funding for the purchase of conservation easements and/or development rights for park and natural resource preservation purposes. Timeline: 3-5 years Purchase of Development Rights (PDR) The purchase of development rights is a land conservation tool that communities can use to protect important natural resources such as farmland, hillsides, and wetlands. Under a PDR program, a unit of government (city, village, town, county, or state) or a nonprofit conservation organization (such as a land trust) purchases a conservation easement that limits the use of the land to accomplish a certain purpose, including protecting the land from development. The rights purchased are recorded in a conservation easement. PDR programs are voluntary and participants retain ownership of their land. They can sell or transfer their property at any time; but, because of the easement, the land is permanently protected from certain types of development. Dodge County Status: No purchase of development rights program exists in Dodge County. Recommendation(s): There is no demand for a countywide purchase of development rights program at this time. Limited funding and the availability of substantial federal, state and county 9-13

133 Fiscal Tools conservancy and other open space land create little demand for this type of program in the county. Timeline: None Capital Improvements Program (CIP) The capital improvements program is a way of implementing issues related to capital facilities specified in a plan. Capital improvements are those projects which require the expenditure of public funds for the acquisition, construction, or replacement of various public buildings such as police and fire halls, schools, and city/village/town halls; roads and highways; water and sewer facilities; and parks and open space. A capital improvements program is a listing of proposed public projects according to a schedule of priorities over the next few years, usually a five year programming period. A CIP allows local communities to plan for capital expenditures and minimize unplanned expenses. Sources of funding for capital improvements include impact fees, subdivision requirements, special assessments, and revenue or general obligation bonding. The usefulness of the CIP depends upon the community properly budgeting for expenditures as part of the community s annual capital improvements budget. Dodge County Status: The County adopts a five-year capital improvement program annually. Recommendation(s): Continue to develop and utilize a five-year CIP. Timeline: Annually Impact Fees Cities, villages, towns, and counties may impose impact fees. Impact fees are financial contributions imposed on developers by a local government as a condition of development approval. Impact fees are one response to the growing funding gap in infrastructure dollars between revenues and needs. Impact fees help shift a portion of the capital cost burden of new development to developers in an effort to make new development responsible for serving itself rather than raising taxes on existing development. Local governments can use impact fees to finance highways and other transportation facilities, sewage treatment facilities, storm and surface water handling facilities, water facilities, parks and other recreational facilities, solid waste and recycling facilities, fire and police facilities, emergency medical facilities, and libraries. Impact fees cannot be used to fund school facilities. Furthermore, counties cannot use impact fees to fund highways and other transportation related facilities. 9-14

134 Dodge County Status: The County charges a $200 park and recreation fee for each new residential lot or new housing unit created. Recommendation(s): No recommendation. Timeline: None. Tax Increment Financing Districts Wisconsin towns recently gained a new tool to help promote rural development in Wisconsin with passage of new legislation in This new legislation provides towns the authority to use the tax incremental financing authority that cities and village have been using for years, to provide infrastructure for tourism, agriculture, and forestry projects in towns. The new law will give an optional tool to help site projects in towns across the state when special infrastructure needs such as all weather roads, power lines, improved rail connections, and more are needed to create new or expanded tourism, agricultural, and forestry projects. An example of the type of project this tool could be used for is to provide a town highway that could carry heavy truck traffic to such a facility as an ethanol production plant or large livestock facility. A new or improved town highway could be constructed to allow the new facility to be located in more remote areas of the state, thus reducing potential land use conflicts with neighbors, yet avoiding placing the burden of the new improvement on the remainder of the town taxpayers. This new legislation gives towns similar authority for tax incremental financing as cities and villages, but is limited to the type of rural development in tourism, agriculture, and forestry that does not compete with cities and villages. According to the Wisconsin Towns Association, this bill helps promote rural development as a part of the Grow Wisconsin efforts of the current Administration and the Assembly Republican Agriculture Renewal initiative. Dodge County Status: Not Applicable Recommendation(s): Not Applicable Timeline: None 9.5 Planning Element Integration and Consistency Comprehensive planning legislation requires that the implementation element describe how each of the nine elements of the comprehensive plan will be integrated and made consistent with the 9-15

135 other elements of the plan. The planning process that was used to create the Dodge County Year 2030 Comprehensive Plan required all elements of the plan to be produced in a simultaneous manner. No elements were created independently from the other elements of the plan, therefore eliminating the threat of inconsistency. There are no known inconsistencies within the plan or individual elements or between goals, objectives, policies and recommendations. Over time the threat of inconsistency between the plan and existing condition will increase, therefore requiring amendments and/or updates to be made, as discussed within the following section. Over time, additional plans regarding specific features within Dodge County may also be developed (i.e. outdoor recreation plan, farmland preservation plan). The process used to develop any further detailed plans should be consistent with this Dodge County Year 2030 Comprehensive Plan. Jurisdictional Relationships for Zoning and Land Division Review Zoning and land division regulations are the two primary regulatory tools that shape land use. All incorporated communities (villages and cities) and some towns in Dodge County utilize both of these tools in some fashion. Jurisdictional relationships with regard to both of these tools are complex at times. The following tables outline the zoning authority, land division authority, and relationships between jurisdictions for the State of Wisconsin, Dodge County, cities, villages and towns. Note that the town-county relationships assume that Dodge County will continue to administer some zoning and land division ordinance programs. 9-16

136 Table 9-1: State of Wisconsin Authority Zoning Authority Land Division Authority Sets minimum zoning standards for shoreland and floodplain zoning that apply in all unincorporated areas after 1967 and in incorporated areas that have been annexed since 1982 or incorporated since 1994 Department of Administration reviews land divisions that meet the state definition of a subdivision plat ( state plats ) in Ch. 236 Wis. Stats. Department of Natural Resources reviews state plats that involve lands within 500 feet of navigable water, or and land division that require stormwater or water quality permits Department of Transportation review state plats that are adjacent to state highways and connecting highways Relationship to Other Jurisdictions The state establishes the constitutional and statutory framework from which counties and local units of government derive their authority. Table 9-2: Dodge County Authority Zoning Authority Land Division Authority May adopt a county zoning ordinance for the unincorporated areas, but does not take affect unless ratified by a town May amend a county zoning ordinance provision or district boundary, but affected towns can disapprove proposed amendments Must enact shoreland and floodplain zoning that applies to lands near waterways regardless of town approval May conduct a comprehensive revision (substantial rewrite) of county zoning ordinance towns may reconsider involvement in county zoning at such a time May adopt land division regulations that apply to the unincorporated areas Town approval is not required before a land division ordinance or amendment takes affect, including a substantial rewrite of county land division ordinance 9-17

137 Relationship to Other Jurisdictions State Counties must adopt shoreland and floodplain zoning that is at least as restrictive as the minimum standards established by state statutes. Counties must adopt a land division ordinance and establish a planning agency in order to review subdivision plats. Cities and Villages Counties must accept the adopted master plans/comprehensive plans and official maps of cities and villages within the county. Within extraterritorial areas, a city or village may prevent the approval of a land division under the jurisdiction of the county ordinance. Counties can object to the approval of land divisions within a city or village, but only on the basis of potential negative impacts on planned regional facilities including parks, drainage ways, major highways, schools, or airports. Towns Counties must act cooperatively with towns in the administration of general zoning (outside of shorelands and floodplains). Towns may not vary from county shoreland and floodplain zoning standards, except that towns may adopt more restrictive regulations. A county and a town may have overlapping zoning and land division authority if both units of government have an applicable ordinance the more restrictive requirement governs. Table 9-3: City and Village Authority Zoning Authority Land Division Authority May adopt zoning regulations that apply within their boundaries May temporarily freeze existing land uses in extraterritorial areas by establishing an extraterritorial zoning area May administer zoning cooperatively with towns in extraterritorial areas Must have a plan commission or other review authority to administer a local land division ordinance May adopt land division regulations that apply within their boundaries May review land divisions within their extraterritorial areas and either deny them or support their approval by the town and/or county Relationship to Other Jurisdictions County Cities and villages generally act independently of counties on land use issues within their boundaries. However, counties can object to the approval of land divisions within a city or village, but only on the basis of potential negative impacts on planned regional 9-18

138 facilities including parks, drainage ways, major highways, schools, or airports. Counties must accept adopted city and village master plans/comprehensive plans and official maps. Cities and villages may have overlapping land division review authority with a county in extraterritorial areas. Cities and villages may have overlapping zoning authority with a county if an extraterritorial zoning area is established. Other Cities and Villages Will never have overlapping extraterritorial authority with another city or village where jurisdiction abuts, the distance between the two is split. Towns Cities and villages generally act independently of towns on land use issues within their boundaries. Cities and villages may have overlapping land division review authority with a town in extraterritorial areas. Cities and villages may temporarily (for up to two years) freeze existing land uses in extraterritorial areas. Cities and villages may have cooperative zoning authority with a town if an extraterritorial zoning area is established. Table 9-4: Towns Under County Zoning Zoning Authority Land Division Authority May provide recommendations to the County Planning, Development and Parks Department regarding zoning petitions (text amendments, rezones, conditional uses) To adopt local zoning regulations: must exercise village powers, must receive a grant of zoning authority from the electors at an annual or special meeting or by referendum, and ordinance must be approved by county board May adopt local zoning regulations that cover subjects not addressed by the county zoning ordinance May adopt local zoning regulations that are more restrictive than the county ordinance Must have a review authority (i.e. Plan Commission, Zoning Board, etc.) to administer a local land division ordinance May participate in the review of county plats by adopting local land division regulations that mirror the county ordinance May adopt local land division regulations that cover subjects not addressed by the county land division ordinance May adopt local land division regulations if they are more restrictive than the county ordinance May set a local minimum lot size that is more restrictive than the applicable standard under county zoning 9-19

139 Relationship to Other Jurisdictions County A town may petition the County Planning, Development and Parks Department for an ordinance amendment. If a county zoning amendment affects a single town or involves a district boundary change in the town, that town can deny the zoning amendment. The adoption of any local zoning ordinance must be approved by the county board. Towns may not vary from county shoreland and floodplain zoning standards, except that towns may adopt more restrictive regulations. A town and a county may have overlapping zoning and land division authority if both units of government have an applicable ordinance the more restrictive requirement governs. Cities and Villages A town and a city or village may have overlapping land division authority in extraterritorial areas a city or village is an approving agency and may prevent the approval of a land division in an extraterritorial area. Cities and villages may temporarily freeze (for up to two years) existing land uses and may cooperatively administer zoning with a town if an extraterritorial zoning area is established. Other Towns If a county zoning amendment affects several towns, a majority of the affected towns must act together to disapprove the amendment. Table 9-5: Towns Not Under County Zoning Zoning Authority Land Division Authority Must exercise village powers to adopt local zoning regulations May adopt local zoning regulations, but must first petition the county board to adopt county zoning. If denied, town can adopt local zoning. Must have a plan commission or other review authority to administer a local land division ordinance May participate in the review of county plats by adopting local land division regulations that mirror the county ordinance May adopt local land division regulations that either cover subjects not addressed by the county land division ordinance, or are more restrictive that the county ordinance 9-20

140 Relationship to Other Jurisdictions County Towns may not vary from county shoreland and floodplain zoning standards, except that towns may adopt more restrictive regulations. The county land division ordinance will apply regardless of town acceptance of the county zoning ordinance. A town and a county may have overlapping land division authority if both units of government have an applicable ordinance the more restrictive requirement governs. Cities and Villages A town and a city or village may have overlapping land division authority in extraterritorial areas a city or village is an objecting agency and may overrule the approval of a land division in an extraterritorial area. Cities and villages may temporarily freeze (for up to two years) existing land uses and may cooperatively administer zoning with a town if an extraterritorial zoning area is established. 9.6 Mechanism to Measure Progress Comprehensive planning legislation requires that the implementation element provide a mechanism to measure progress toward achieving all aspects of the comprehensive plan. An acceptable method to measure progress toward achieving all aspects of the comprehensive plan is to evaluate two primary components. The two components, policies and recommendations, are listed within each identified plan element (usually the last section within each element). To measure the effectiveness of an adopted policy, the county must determine if the policy has met the intended purpose. To determine whether the policy is achieving the county's intention a measure must be established. Each listed policy within each element should be reviewed periodically to determine the plan s effectiveness. Likewise, recommendations listed within each element can be measured. For recommendations, the ability to measure progress toward achievement is very straight forward in that the recommendations have either been implemented or not. To ensure the plan is achieving intended results, periodic reviews should be conducted by the Dodge County Planning, Development and Parks Committee and the results reported to the County Board of Supervisors. 9-21

141 9.7 Comprehensive Plan Amendments Dodge County should regularly evaluate its progress towards achieving the goals, objectives, policies, and recommendations within the comprehensive plan. It may be determined that amendments are needed to maintain the effectiveness and consistency established within the plan. Amendments are minor changes to the overall plan and should be done after careful evaluation in a non-accommodating manner to maintain the plan as a planning tool upon which decisions are based. According to comprehensive planning legislation, the same process that was used to initially adopt the plan shall also be used when amendments are made. The county should be aware that as more local government plans are developed the amendment procedure may be clarified or changed and should therefore be monitored. 9.8 Comprehensive Plan Updates Comprehensive planning statutes require that the comprehensive plan be updated at least once every ten years. An update requires revisiting the entire planning document. Unlike an amendment, an update is often a substantial re-write of the text, updating of the inventory and tables and substantial changes to maps, if necessary. The plan update process should be planned for in a similar manner as was allowed for the initial creation of this plan including similar time and funding allotments. State statutes should also be monitored for any changes, new or removed language. 9.9 Implementation Goals and Objectives Wisconsin Statutes requires a statement of overall goals and objectives to guide the future development and redevelopment of the county over a 20-year planning period. The following are the goals and objectives developed by Dodge County with regard to the Implementation element. Goal: Consistency between and integration of the comprehensive plan goals, objectives, policies and recommendations into County ordinances, regulations, programs, and activities. Goal: Coordinate the development of future land use, development and preservation regulations and programs with the residents, land owners, local municipalities, and the County Board. Objectives: 1. Encourage and assist all local communities to develop a detailed local comprehensive plan consistent with the balanced community concept, agricultural preservation plans and residential cluster design concepts. 9-22

142 2. Encourage the use and updating of appropriate planning tools such as land use plans and zoning to minimize land use conflicts. 3. Develop design guidelines and specific development standards in order to direct the development s appearance and function including the landscaping, open space, building scale and building materials, and adopt these standards and guidelines as part of the County Land Use Code. 4. Encourage towns to prepare land use plans, development policies and design guidelines to use when considering proposals for new development. 5. Develop a site plan review process for non-agricultural structures in rural areas. Review the location of buildings, roads and driveways to minimize the loss of prime agricultural land, wooded hilltops and natural vegetation. 6. Provide and promote professional planning expertise serving both the County and local municipalities. 7. Amend and update the Dodge County Zoning and Land Division Regulations to reflect new goals and policies. 8. Provide a section of the zoning ordinance clearly defining the purpose and mission of the zoning ordinance and specifically tying the zoning ordinance to the County Comprehensive Plan. 9. Provide information and assistance to towns that administer their own zoning ordinances. 10. Hold educational forums and public meetings on sound land use planning, resource protection and other pertinent topics to keep citizens informed and interested in the planning process. 11. Utilize the County s Land Information Office and GIS system to provide County officials, local governments and individuals with accurate maps and data. 12. Further integrate the Planning, Development and Parks Department with the Land Information Department so that land use data can be used more effectively Implementation Policies and Recommendations Policies and recommendations build on goals and objectives by providing more focused responses to the issues that the County is concerned about. Policies and recommendations become the tools that the County can use to aid in making land use decisions. 9-23

143 Policies identify the way in which activities are conducted in order to fulfill the goals and objectives. Policies that direct action using the words will or shall are advised to be mandatory and regulatory aspects of the implementation of the comprehensive plan. In contrast, those policies that direct action using the word should are advisory and intended to serve as a guide. Policies: 1. Establish a policy of having the Planning, Development and Parks Committee and Board of Adjustment meet together at least bi-annually to discuss and implement needed changes in the land development code and the procedures in place for implementing it. 2. Support a partnership between the County and the towns under which the towns exchange their own zoning for a stronger role in subdivision regulation, County zoning, the enforcement of their own building code, and free and current information, maps, and assistance from the County. 3. All proposed developments shall be reviewed for consistency with the Dodge County Comprehensive Plan. 4. Comprehensive Plan amendments should be considered at a maximum of only two public hearings held each calendar year. 5. The Land Use Code should be consistent with the policies and recommendations of the comprehensive plan. 6. The Planning, Development and Parks Committee shall have the responsibility to make recommendations to the County Board regarding code amendments and plan amendments. 7. An annual review of the comprehensive plan should be done by the Planning, Development and Parks Department staff to evaluate the success of the Plan. 8. If a Town has adopted density standards within their Comprehensive Plan or Land Division Ordinance that are stricter than the County s, any land division request that does not conform to the Town s density standard should be denied by the County. 9. The County should only enforce the minimum standards required by the state within the Shoreland Wetland areas in those towns that have their own zoning ordinance. 10. New lots should abut a public road for a distance of at least 66 feet. 9-24

144 Recommendations: Recommendations are specific actions or projects that the county should be prepared to complete. The completion of these actions and projects is consistent with the county s policies, and therefore will help the county fulfill the comprehensive plan goals and objectives. 1. Amend the County Zoning Map in a manner that is consistent with the Comprehensive Plan. 2. Update the County Land Use Code to ensure it is consistent with the Comprehensive Plan. 3. Develop a flowchart of the County regulations and procedures to assist the public with understanding the requirements. 4. Provide written findings for each County action involving a land use decision to show how the request is either consistent or not consistent with the Comprehensive Plan. 5. Conduct an annual review of the comprehensive plan to evaluate the success of the Plan. 6. Retain a County Advisory Committee after the plan revision has been adopted to meet at least bi-annually to discuss and recommend changes and updates needed in the Comprehensive Plan. 7. Establish minimum standards for County approval of town plans and future amendments, including the lapse of approval if the plan is not updated following a public hearing at least every 10 years. Remind towns of the need to update their plans and ordinances on a regular basis to reflect changing needs and conditions. 8. Update the Comprehensive Plan every five years or sooner when conditions warrant and when doing so, seek the advice of the County Highway Committee and Department, Land Conservation Department, Wisconsin Departments of Transportation and Natural Resources and a variety of other sources and amend and update the Land Use Code to reflect new policies and each revision to the Comprehensive Plan. 9. Submit the Comprehensive Plan to all the municipalities of Dodge County following adoption by the County Board of Supervisors. 10. Update the County Park and Open Space Plan every five years to evaluate parkland ratios and standards and conduct public informational meetings as part of the process of updating the plan. 9-25

145 11. Use funds raised through the subdivision park and recreation fee to match funds appropriated by the County Board, and then use the sum of these funds to match State grants for the purchase of land or easements for County parks and open space. 12. Amend the Land Use Code so the use regulations of the Code are not in effect within shoreland areas of those towns that have adopted their own zoning ordinance. 13. Amend the Land Use Code to reduce the minimum lot width from 125 feet at the building setback line to 66 feet of frontage along a public road. 14. The Dodge County Land Use Code shall be used to implement the Year 2030 Comprehensive Plan policies related to the use, development, and division of land under the jurisdiction of the County. The Land Use Code shall establish specific zoning, land division, and development districts, land use and site development intensity, density and dimensional standards, criteria, allowances, limitations, and review and permitting procedures. 15. Establish criteria and procedures in the Land Use Code necessary to provide property owners the right to appeal decisions made by County staff and obtain variances resulting from or otherwise related to the administration and/or enforcement of the requirements, restrictions, allowances, limitations and other provisions of the Land Use Code. 16. Special zoning overlay district regulations shall be established in the County Land Use Code as necessary to encourage innovative planned unit development design, development and layout standards that are intended to achieve a higher level of environmental protection, farmland preservation, energy efficiency, aesthetics and an overall higher quality of development. Please refer to prior Sections 9.3 and 9.4 of this report for additional recommendations Implementation Programs The following general programs are currently available to the County to assist with implementation of the various goals, objectives, policies, and recommendations of the Implementation of the. Wisconsin Department of Natural Resources (WDNR), Plan Implementation Tools The WDNR offers a listing of implementation tools through their web-site including zoning and model ordinances, resource-based planning tools and planning related grants and funding. Local Government Officials Programs The University of Wisconsin-Extension, Local Government Center offers a educational series through the Education Teleconference Network (ETN). The Educational Teleconference Network (ETN) links speakers and participants across Wisconsin. ETN allows the program and listeners' questions to be heard simultaneously at all locations. ETN series programs are 9-26

146 moderated by the staff of the University of Wisconsin-Extension Local Government Center. The program currently covers four areas including current issues affecting local government officials, conducting local elections, local land use planning and zoning, and local transportation issues. Registration and information can be obtained by contacting the local county UW-Extension office. UW-Extension, Wisconsin Rural Leadership Program The goal of the innovative Wisconsin Rural Leadership Program (WRLP) is to strengthen communities through preparing leaders as catalysts to effectively deal with today's changing world. The program employs a combination of classroom activities, field experiences, and readings organized into a series of practical seminars over a two-year period. Program participation is limited to 32 participants for each two-year session, and is determined through an application and interview process. 9-27

147 9-28

148 Dodge County Year 2030 Comprehensive Plan Appendix A Maps Appendix A

149 Appendix A

150 Dodge County Year 2030 Comprehensive Plan Appendix B Utilities & Community Facilities Expansion & Rehabilitation Timetable Summary Appendix B

151 Wisconsin s comprehensive planning legislation requires that the Utilities and Community Facilities element of the comprehensive plan include an approximate timetable that forecasts the need to expand or rehabilitate existing utilities and facilities or to create new utilities and facilities. Each community which participated in the Dodge County planning process completed a listing of short and long term utility and community facility needs and projects. Short term projects were defined as occurring within one to five years and long term projects were defined as occurring six years and beyond. Table B-1 provides a summary of this assessment for utilities and facilities of all communities which participated in the Dodge County planning process. Table B-1 Utilities and Community Facilities Timetable Summary, Dodge County, 2005 Type of Improvement Number of Short Term Projects Number of Long Term Projects New Municipal Hall/Facility 1 4 Municipal Hall/Facility Improvements 5 5 Garage or Storage Improvement or Development 0 4 Police Equipment/Car Upgrades 2 1 EMT Equipment Upgrades/Staff Additions 2 0 Fire Protection Equipment/Truck Upgrades 2 0 Development of Municipal Court 0 2 Development or Study of Full Time Police Department 1 5 Library Expansion or Improvements 2 1 Landscaping Improvements 1 0 Park or Recreation Facility Development 4 6 Park or Recreation Facility Improvement 4 4 Trail/Walking Area/Sidewalk Improvement or Development 4 0 Downtown Aesthetic Improvements 0 2 Land Acquisition (conservation, future growth, etc.) 0 5 Solid Waste, Recycling, or Composting Facility Development 0 1 Sewer Main and Lateral Improvements or Development 4 1 Lift Station Improvement or Development 2 3 Waste Water Treatment Facility/Sanitary District Development 0 1 Waste Water Treatment Facility Improvement or Upgrade 3 2 Well Abandonment 2 0 Well Development 4 1 Hydrant Replacement 1 0 Water Tower Improvement 1 0 Water Tower Removal 1 0 Water Main Replacement or Improvement 0 5 Appendix B

152 Type of Improvement Number of Short Term Projects Number of Long Term Projects Water System or Pump Improvement 1 2 Storm Sewer or Retention Facilities Development 0 2 Ditch or Culvert Improvements for Stormwater Management 3 0 Dam Improvements 1 0 Road Improvements/Upgrades 4 2 Bridge Removal 1 0 Bridge Improvement or Development 1 1 Signage Improvement 0 1 Development of Road Access Controls 2 4 Cemetery Improvements 2 1 Industrial Park Development 0 1 Web-site Development 1 0 Development of Capital Improvement Plan 5 0 Wellhead Protection Plan or Ordinance Development 0 1 Stormwater Management Plan or Ordinance Development 0 5 Park and Recreation Plan Development or Update 1 1 Total Source: Local participating community s. It should be noted that Table B-1 only identifies specific projects that will be completed or are needed during the planning period. Many municipalities also identified projects or studies that should be reviewed, encouraged, or evaluated as conditions in the community change over time, which are not listed in Table B-1. Communities also identified that general maintenance of utilities and facilities should be completed. Many communities also identified the need to evaluate or consider further use of intergovernmental cooperation in providing particular services or facilities. Appendix B

153 Dodge County Year 2030 Comprehensive Plan Appendix C Dodge County Capital Improvements Program Appendix C

154 Appendix C

155 Appendix C

156 Appendix C

157 Appendix C