Clay County, Iowa 2010 Comprehensive Plan CLAY COUNTY IOWA

2010

COMPREHENSIVE LAND USE PLAN

Prepared with Planning Assistance from Northwest Iowa Planning & Development Commission Spencer, Iowa

1 Clay County, Iowa 2010 Comprehensive Plan

2 Clay County, Iowa 2010 Comprehensive Plan CLAY COUNTY COMPREHENSIVE LAND USE DEVELOPMENT PLAN

Prepared with Planning & Technical Assistance By: Northwest Iowa Planning & Development Commission 217 West 5th Street, Box 1493, Spencer, Iowa 51301 (712) 262-7225 1-800-798-7224

In Cooperation with and Support from: Clay County Tammy McKeever, Zoning Administrator Clay County Administration Building - Lower Level 300 W 4th St. Spencer, Iowa 51301 Office Hours: Monday – Friday 8:00 A.M- 4:30 P.M. Ph: (712) 262-8165 Fax: (712) 264-3991

Clay County Board of Supervisors Clay County Planning Commission Del Brockshus L.R. Peterson (Spencer) Ken Chalstrom Dave Wyatt (Ruthven) Burlin Mathews Keith Kruse (Everly) Joe Skow Robert White (Peterson) Linda Swanson Rita Smith (Webb) Sharon McKeever (Spencer) David Kaus (Spencer)

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2010 CLAY COUNTY COMPREHENSIVE PLAN EXECUTIVE SUMMARY The comprehensive land use plan, required by Iowa law for those counties and cities wishing to enforce zoning regulations, annexations, urban renewal tax benefits and other land use controls, is developed to be Clay County’s primary guide for future land use policy decision making. This planning document is comprehensive in nature, assessing past and current conditions and making projections about population, housing, economic conditions, and land use issues. The core of the plan is comprised of two primary sections, to be supported by the remainder of the collected data and statistical analysis recorded in this plan. 1) Goals, Objectives & Policy Recommendations for the next 10 to 20 years in Clay County 2) Future Land Use Map displaying an ideal pattern of future land uses and development. Included within this executive summary are the general comprehensive plan goals and the proposed land use map. Supporting data is available within the main body of the plan, as well as additional policy recommendations for the future of Clay County.

SUMMARY OF OVERALL COMPREHENSIVE PLAN GOALS

The comprehensive planning process as completed by the county’s Planning and Zoning Commission provides the county tools for effectively directing change for the positive. The Planning Commission must commit to working with the Board of Supervisors and other county departments to properly guide the successful implementation of this plan in addition to other development issues. The amount of growth, change or shifting of land use trends in Clay County will determine the type and frequency that the Planning Commission will need to utilize and perhaps even amend this document. Photo courtesy of www.co.clay.ia.us/ 1. Clay County should strive to preserve and protect prime agricultural lands while continuing to separate the distinct urban and rural characteristics of the county. 2. Clay County should consider and finds ways to mitigate or lessen the impact of development on neighboring properties when making future land use decisions. 3. Clay County should achieve a progressive balance between promoting development to facilitate the economic development potential of the county and respecting the rights and responsibilities to preserve prime agricultural lands and natural resources. 4. Clay County should take measures to preserve, protect and enhance the irreplaceable natural resources of the county, both recreational and pristine. 5. Clay County should facilitate the provision of necessary and required county services to its residents, businesses and industries in a reasonable, efficient and fiscally responsible manner. 6. Clay County must recognize the importance of securing new and expanding businesses, including but not limited to those businesses promoting the use of renewable resources and alternative energy in an effort in attract, create and retain good paying jobs for the county’s residents.

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7. Clay County should welcome new residents to locate within the county through encouraging or facilitating new and expanding residential development, in addition to those economic or financial assistance programs which may entice new developments. 8. Clay County has already established an environment and economy which promotes agricultural and animal husbandry. The County should continue to promote these key economic interests, but also expand its economic development efforts to include new, innovative, renewable resource, and green industries. 9. Clay County should continue to maintain a transportation and infrastructure system that provides for the safe, convenient and economical movement of people and goods in and out of the county.

IMPLEMENTATION OF THIS PLAN

With anticipated future changes, shifts and the potential for new growth and development in Clay County, expected changes will bring about the opportunity to address these changes and establish a benchmark from which new trends in land use and development will be measured. Clay County’s leaders of today and tomorrow are granted the responsibility of identifying, leading, and being the first to accept and embrace a bright future for Clay County. Listed below are samples of attainable implementation strategies in which the county’s planning leaders and government leaders may explore to fully realize the maximum benefit from this comprehensive planning document. 1. Establish a benchmark for Clay County, from which future growth and development patterns and changes will be measured against. 2. Create an action plan addressing county growth, city growth and annexation policies. 3. Allow county leaders, staff and government officials to attend training or educational opportunities in an effort to gain new perspective or innovative trends in land use policy and regulatory controls. 4. Work collaboratively with local city leaders and regional or state economic development leaders to discuss, plan and implement measures to seek new and expanding employment opportunities in Clay County. 5. Establish an annual comprehensive plan review workshop in which members of the public are invited to share with County planning officials and the Board of Supervisors their thoughts, concerns, and visions for Clay County’s future. 6. Regularly update an inventory of the County Conservation’s parks, recreation areas, and natural resources; identifying completed and proposed short term and long term park, trail or other natural habitat development. 7. Clay County, with an aging population base, must address future needs and services targeted to the senior demographic. 8. Clay County, in a joint effort with its largest community/urban center, must continue to exhibit a welcoming impression to new residents of the community and county.

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9. In establishing new county policies, government leaders must remember the property rights and interests of land owners in Clay County. Consistency and fairness is a must. 10. Once the county completes a comprehensive review and update of its enforcement ordinances, such as zoning and subdivision regulations, it would be beneficial to Clay County to have the services of zoning administration and enforcement consistent with new or proposed rules adopted by the county.

CLAY COUNTY FUTURE LAND USE PLAN

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TABLE OF CONTENTS

Chapter 1. INTRODUCTION & PLANNING ELEMENTS ...... 1

Chapter 2. COUNTY HISTORY ...... 4 National Register of Historic Places...... 8

Chapter 3. PLANNING BACKGROUND & PUBLIC INPUT ...... 9 Background of Comprehensive Planning ...... 9 Public Input & Data Gathering ...... 9

Chapter 4. AGRICULTURE ...... 12 Agricultural Economy...... 12 Farm Income ...... 14 Agricultural Land Values ...... 15 Grain Processing Facilities ...... 17 Value Added Agriculture...... 18 Alternative Energy...... 19

Chapter 5. PHYSICAL FEATURES...... 21 Geographic Location...... 21 Climate...... 21 Landforms/Landcover...... 23 Soils ...... 25 Aquifers and Ground Water...... 31 Drainage/Watershed ...... 32 Land Conservation Practices ...... 33 Conservation Programs for Landowners - NRCS...... 34

Chapter 6. COUNTY POPULATION TRENDS ...... 36 Past Population Trends ...... 36 Rural Versus Urban ...... 37 Townships...... 38 Current Population Structure ...... 40 Population Change – Natural Change and Migration...... 43 Future Population Projections ...... 44

Chapter 7. HOUSING ANALYSIS ...... 46 Housing Valuations ...... 46 Housing Assistance Programs ...... 47 Clay County Local Housing Trust Fund...... 48 Building Permits ...... 49 Housing Occupancy...... 49 Housing Unit Projections...... 50

Chapter 8. PARKS, RECREATION & NATURAL RESOURCES...... 51 County Parks, Recreation and Wildlife Areas...... 51 State Parks...... 55

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Clay County Conservation Board ...... 56 Parks and Recreation Responsibilities...... 56 Demand for Recreation Activities ...... 56 State of Iowa Projected Recreation Trends ...... 57

Chapter 9. ECONOMIC DEVELOPMENT ...... 59 Employment Trends...... 59 Industry Trends...... 61 Location Quotient ...... 63 Industry/Employment Projections ...... 64 Commuting Patters...... 65 Wages & Income Distribution ...... 66 Retail Trade Analysis ...... 68 Trade Area Capture...... 73 Iowa Lakes Corridor Development Corporation...... 74

Chapter 10. TRANSPORTATION & INFRASTRUCTURE ...... 75 Transportation Planning Factors...... 77 Traffic Flow...... 77 Street Classifications (Definitions)...... 79 Federal Functional Classification of Roads...... 81 Clay County 5-Year Road Construction Plan...... 83 Public Transit Services ...... 84 Railroad Services ...... 84 Airport Services ...... 85 Rural Water Systems ...... 85 Clay County Drainage Districts...... 87

Chapter 11. COUNTY SERVICES...... 88 Fire Protection Services...... 89 Law Enforcement...... 92 Emergency Management...... 93 Landfill/Solid Waste Service...... 94 County Utilities & Services ...... 94 Health Care Facilities & Senior Care ...... 95 Education ...... 97 Churches ...... 101 Cemeteries ...... 101 Museums & the Fine Arts...... 103 Clay County Fair and Regional Events Center...... 104

Chapter 12. OVERALL GOALS AND LAND USE OBJECTIVES...... 105 Clay County Comprehensive Plan Goals...... 105 General Land Use Objectives /Trends...... 106

Chapter 13. LAND USE PLAN AND POLICY RECOMMENDATIONS...... 109 Land Use Definitions...... 109 Land Use Characteristics/Growth Trends...... 111 Agricultural Land Use ...... 111

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Residential Land Use...... 113 Commercial Land Use ...... 114 Industrial Land Use...... 116 Civic/Public Land Use...... 117 Parks and Recreation Land Use...... 118 Natural Resource/Environmentally Sensitive Land Use ...... 119 Transportation and Infrastructure ...... 121 Future Land Uses...... 121 FUTURE LAND USE MAP

Chapter 14. ADDITIONAL DEVELOPMENT ISSUES...... 123 Annexation...... 123 Extraterritorial Zoning and Land Use...... 124

Chapter 15. PLAN IMPLEMENTATION...... 126 Implementation Strategies ...... 127

Cites References and Information Sources...... 128 Referenced Website Resources...... 129

Detailed Schedules of Soil Suitability – based upon types of use ...... Appendix A 2008 Retail Sales Analysis & Report, Clay County ...... Appendix B A SocioEconomic Profile for Clay County, Iowa 2009 ...... Appendix C 2009 Clay County Needs Assessment Statistical Report ...... Appendix D

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FIGURES & TABLES

FIGURES Figure 1 – Clay County location map...... 3 Figure 2 – Historic 1895 map of Clay County, Iowa...... 7 Figure 3 – Farm Size in Clay County by Number of Acres, 2007...... 13 Figure 4 – Gross Income and Net Income from Farming ...... 15 Figure 5 – 1999 to 2008 Agricultural Land Values for Clay County and Iowa ...... 16 Figure 6 – 2000 and 1999 Land Values and 2008 and 2007 Land Values...... 17 Figure 7 – 2008 Iowa Land Values for all 99 Counties in Iowa...... 17 Figure 8 – Clay County Grain Storage and Transportation Map...... 18 Figure 9 – Northwest Iowa Biodiesel and Ethanol Processing Plants, 2008...... 20 Figure 10 – Average Climate Trends in Clay County ...... 22 Figure 11 – Landform Regions of Iowa...... 23 Figure 12 – Landcover/Land Use Map of Clay County ...... 24 Figure 13 – General Soils Map of Clay County, Iowa ...... 26 Figure 14 – Alluvia Aquifers in Iowa...... 31 Figure 15 – Dakota Aquifer of Iowa...... 31 Figure 16 – Watershed Boundaries in Clay County ...... 32 Figure 17 – Historic Population Trends, 1900-2008 ...... 37 Figure 18 – Urban vs. Rural Population Trends 1900-2007...... 37 Figure 19 – Township Map of Clay County...... 39 Figure 20 – 2000-2008 Comparison Population of Neighboring Counties ...... 40 Figure 21 – 2000 Clay County and Iowa Population Distribution ...... 41 Figure 22 – Age Distribution Comparison, Clay County, Iowa, United States, 2000...... 42 Figure 23 – Natural Change and Migration Patterns of Clay County, Peer Group, Iowa 2000-2007...... 43 Figure 24 – Projected Population Growth 2010-2030...... 45 Figure 25 – Housing Valuations of Owner-Occupied Housing Units...... 47 Figure 26 – Comparative Median Housing Values, 2000 ...... 47 Figure 27 – Building Permits in Clay County, 2000-2008 ...... 49 Figure 28 – Clay County Conservation Parks and Recreation Map...... 53 Figure 29 – Map of Scharnberg Park...... 54 Figure 30 – Unemployment Rates for Clay County, Iowa and United States, 2000-2009...... 59 Figure 31 – Labor Force Trends in Clay County, 1990-2009 ...... 60 Figure 32 – Employment by Industry Sector, Clay County and Iowa, 2000 ...... 61 Figure 33 – Retail Sales for Clay County, 1980-2008...... 69 Figure 34 – Per Capita Sales for Clay County, Peer Group and Iowa, 2008...... 69 Figure 35 – 2008 Total Retail Sales Comparison of Clay County and Surrounding Counties ...... 70 Figure 36 – 2008 Pull Factor Comparison of Clay County and Surrounding Counties ...... 71 Figure 37 – Pull Factor for Clay County and Peer Group, 2008 ...... 72 Figure 38 – 2009 Iowa DOT Transportation Map of Clay County ...... 76 Figure 39 – 2007 IDOT Annual Average Daily Traffic Map (near cities of Clay County) ...... 78 Figure 40 – Clay County Federal Functional Classification Map, IDOT...... 81 Figure 41 – City of Spencer Small Urban Center Federal Functional Classification Map ...... 82

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Figure 42 – Clay County 5-Year Road Construction Program...... 83 Figure 43 – 2006 Railroad Service Map...... 84 Figure 44 – Iowa Lakes Regional Water Service Territory Map ...... 86 Figure 45 – Drainage District Map of Clay County ...... 87 Figure 46 – 2009 Clay County Fire Districts Map ...... 91 Figure 47 – Clay County School Districts Map...... 97 Figure 48 – Educational Attainment of Clay County Residents, 2000...... 100 Figure 49 – Map of Clay County Cemeteries ...... 102

TABLES Table 1 – Farm Acres in Clay County and Iowa, 1997 and 2007...... 12 Table 2 – Number of Farms in Clay County and Iowa, 1997 and 2007 ...... 13 Table 3 – Livestock Inventories for Clay County, 1997-2007 ...... 13 Table 4 – Harvested Crops in Clay County, 2002 and 2007 ...... 14 Table 5 – Gross Income, Expenses, and Net Income from Farming ...... 15 Table 6 – Clay County and Iowa Agricultural Land Values, 1999-2008 ...... 16 Table 7 – Clay County Corn Suitability Rating for Soils over 65 CSR ...... 29 Table 8 – Historic Population Trends, Clay County ...... 36 Table 9 – Percentage of Population Change in Cities in Clay County...... 38 Table 10 – Land Mass and Rural Population of Clay County Townships, 2000 ...... 38 Table 11 – Age Distribution of Population, 2000 (Clay County and Iowa)...... 42 Table 12 – Natural Change & Migration Patterns of Clay County, Peer Group & Iowa, 2000-2007...... 44 Table 13 – Projected Population Trends, 2010-2030 ...... 45 Table 14 – Valuations of Owner Occupied Housing Units, Clay County, 2000...... 46 Table 15 – Valuations of Owner Occupied Housing Units, Iowa, 2000 ...... 46 Table 16 – 2000 to 2008 Residential Housing Units Building Permits...... 49 Table 17 – Vacancy Status, 2000 ...... 50 Table 18 – Projected Housing Units Needed in 2010, 2020 and 2030...... 50 Table 19 – Employment Trends by Industrial Sector, Clay County, 1990, 2000, 2009...... 62 Table 20 – Nonfarm Employment by Sector – Percentage and Location Quotients, 2008...... 64 Table 21 – Iowa Workforce Development Region 3&4 Employment Projections, 2006-2016...... 64 Table 22 – County to County Worker Flow for Clay County, 2000 ...... 66 Table 23 – Household and Family Income Comparison of Clay County and Surrounding Counties...... 67 Table 24 – Clay County Household and Family Income Distribution ...... 67 Table 25 – Iowa Workforce Development Wage Survey for Clay County, 2007...... 68 Table 26 – Retail Trade Overview for Clay County, 2007-2008 ...... 68 Table 27 – 2008 Pull Factor Ranking in the State of Iowa...... 72 Table 28 – 2008 Retail Sales Per Capita Ranking in the State of Iowa...... 72 Table 29 – Trade Area Capture ...... 73 Table 30 – Secondary Road Miles and Surface Type in Clay County, 2009 ...... 75 Table 31 – Farm to Market Road Miles and Surface Type in Clay County, 2009...... 75 Table 32 – IDOT Annual Average Daily Traffic Counts along major Transportation Routes ...... 79 Table 33 – Clay County Public School Enrollment by Year and Projected Enrollment...... 98 Table 34 – Cemeteries in Clay County and their Location ...... 102

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Chapter 1. INTRODUCTION & PLANNING ELEMENTS A comprehensive plan is a collection of material and information designed to guide the future growth and development of the community. The comprehensive plan is general in nature and provides a framework and policy context within which to make land use decisions relating to future development. The comprehensive plan must be long range, looking forward 15 to 20 years, and does not plan a highly specific course. Rather, the plan points toward land use goals and general policies that the city should consider when making development decisions. While short term planning is important, such as a capital improvement planning, strategic action plans, economic development strategies, or municipal budgeting, it is not within the scope of the comprehensive plan, although these short term plans may be incorporated into the comprehensive plan by reference.

The comprehensive planning process consists of utilizing past and present efforts DEFINTION OF A COMPREHENSIVE PLAN: and information provided by predecessors “A long-range plan intended to guide the growth and and integrating this information into a development of a community or region that typically vision for the future. What exactly is a includes inventory and analytic sections leading to “vision?” A vision is an image or foresight recommendations for the community’s future into where representatives of Clay County economic development, housing, recreation and open wish to see county growth and development space, transportation, community facilities and land directed in the future. A common vision is use, all related to the community’s goals and critical for the development of a objectives for these elements” comprehensive plan, because once a vision As defined in “The New Illustrated Book of Development Definitions”, statement has been established; it serves as Harvey S. Moskowitz & Carl G. Lindbloom, 1993. a focal point for all other long range plan goals and specific policy statements to aim for.

The plan is an intense study and analysis into specific components that make the county work. Another aspect that is explored in the comprehensive plan is the physical growth and development of the county itself. Information on changes in land uses, infrastructure, transportation, county facilities and services, population, housing, and other features are very important in determining the current condition of the county. This information is extremely useful in determining objectives and policies relating to agricultural lands, the natural environment, the built or developed environment, varying land uses, and other such activities that directly affect the physical aspects of Clay County.

The comprehensive plan and land use map for Clay County is not “etched in stone” per se. The plan’s overall goals and policies and future land use designations are intended to be updated and amended as needed. As the county grows or changes from year to year, so will its needs. Therefore, the comprehensive plan should reflect new changes and possibly new objectives or policies toward specific actions. Ideally, the comprehensive plan would be updated on an annual basis. Actions recommended by the planning and zoning commission and approved by the Board of Supervisors can amend this plan to reflect current trends or simply a change in philosophy regarding one or more of the policy statements.

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The Iowa Code makes it clear that zoning regulations must be made in accordance with a local comprehensive plan. According to Chapter 335.5, Iowa Code, if a county is to zone then “The regulations shall be made in accordance with a comprehensive plan and designed to preserve the availability of agricultural land;” All counties that are involved in zoning and land use regulations need to have an updated plan to guide development activities. In general this comprehensive plan should and will contain sections regarding population and housing trends, socio-economic data, transportation & infrastructure, parks & recreation, city services & community facilities, economic development and future land uses. Once the working definition of planning has been internalized by those involved, the steps of the actual process should commence. 1) The primary stage of a planning program is research and data collection. It is from this supply of data that all decisions will be based, indicating that the more extensive and specific the data is the more accurate and functional the decisions. The first step is to identify all sources of existing data, and establish what data needs exploration and research. 2) Analysis of the data collected is an ongoing activity conducted at the same time the research and data collection is being pursued. Analysis involves the collection and presentation of data in written and/or graphic form to establish a complete base of existing conditions. Once this base has been established, the analysis proceeds into projection of future trends and growth. 3) All of this input will facilitate the evolvement of certain broad and general goals for the planning area. A goal is that aim or end toward which effort is to be directed. Objectives involve bringing the goals closer to reality and specifically establishing those accomplishments that are desirable and closer to realizing established goals. 4) The goals and objectives constitute the framework for plan preparation. Before submission of the plan to the legal bodies concerned, it should have been studied and commented upon by all involved sectors and altered accordingly. 5) Legalization of the plan involves the plan adoption by the Board of Supervisors. Public hearings and wide distribution of the plan should take place before formal adoption proceedings. The plan must meet with the approval of those in the planning area to function properly. 6) Actual implementation of the plan is not carried out by any one department or agency, but is out of necessity a combined effort of all government, private and related entities. The plan will list and define various tools of implementation (zoning and subdivision regulations, capital improvements programs, etc.).

This comprehensive plan is to be used by both public and private sectors in land use decision- making processes. The private sector, including developers, investors, industry, and businesses will use this document to become informed of the official positions of the county regarding land use and policy issues. The public or government sector shall use the plan as a guide in land use decision making processes. While this working document is the result of the efforts of the county, it has been prepared representing the interests of all Clay County residents. Decisions affecting land uses within Clay County should follow the spirit and intent set forth in this plan.

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Clay County - Location Map

Figure - 1

State of Iowa

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Chapter 2. COUNTY HISTORY Clay County, located in the northwest corner of Iowa, was formally organized in the fall of 1858. Its name is in honor of Lieutenant Colonel Henry Clay Jr. of the Mexican War. On the contrary, the county is not named after the quality clay material used in the making of bricks, which is thought by many as the origin of the county’s namesake. Before its organization Clay County was attached to Woodbury County for judicial and civil reasons. After its independence was declared, an election was held on October 12, 1858. It was held at the home of A. S. Mead and its purpose was the election of county officials. Of the 18 men who voted, 14 were elected to an office. Those offices were kept in the homes of the officers until 1859. At this time A. W. Hubbard, Photo of original Clay County Courthouse in Peterson Judge of the Fourth Judicial District, authorized a commission to locate a county seat. On July 16, 1859 the commission chose the present site of Spencer. But, due to the fact that Spencer was unimproved and no settler lived within a 10-mile radius, it was refused by the residents of Clay. In May 1860 the county judge received a petition asking that the county seat be located at Peterson. An election was held, and all 10 participants voted in favor of Peterson. Soon afterwards a courthouse was built at a cost of Where does Peterson Auto Electric fit into Clay County $6,000. The county seat remained in Peterson history? The second floor of this building was once the until 1871. In 1871 the town of Spencer was Clay County Courthouse. It was built in 1871 and served formally laid out, and since it was more centrally as the courthouse until 1882 when it was replaced by rented space in a nearby bank building. located than Peterson, the question of moving the Photo source: Theresa Wurth, http://co.clay.ia.us/ county seat was asked again. It was answered in an election held in October of that same year; Spencer won the county seat by a margin of 159 votes.

Photo of the Clay County Courthouse built in Spencer The first courthouse was built by the residents of Spencer. They formed a stock company and sold shares. Those who could not afford a share offered their labor. When the building was completed, it was sold to the city for $1,333. A second building was built in 1884 at different location. It was criticized by the residents as being plain and boring. It was the best that the county could do because they were held to $5,000 by the law. From 1884 until 1900 a plain two story brick structure was erected on land several Spencer citizens purchased and donated. Photo courtesy of http://co.clay.ia.us/ It was decided in 1900 that the county needed a new courthouse. The structure was erected on the same site as the second and was ready for occupation in September 1901. No formal dedication was held: the doors were just opened and

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business continued. This building is no comparison to the second. Costing $60,000, $3,000 on marble alone; it is a beautiful structure. The main entrance to the courthouse faces south and is flanked by four enormous columns built of Portage Entry Red Stone and capped with terra cotta. Above the columns resides an American Eagle with outstretched wings surrounded by a laurel wreath. Atop the building sits a clock tower that was added to the original structure about 1910.

One of the two display cases in the first floor lobby contains Photo of the interior of the Clay County Courthouse relics from the Grand Army of the Republic and is dated 1930. The rightmost case contains a flag that was made by the women of Clay County in 1871. The 37 star flag hung outside of the original Lincoln School.

Photo of the interior of the Slate steps lead to the second Clay County Courthouse level where the original tile floor still stands. Over the stairs are two windows topped by circular stained glass of blue and gold. A large memorial quilt, depicting Photo courtesy of http://co.clay.ia.us/ the floor tile is displayed in the second floor lobby. The quilt is appropriately titled, "Tiles of Clay". Beneath the quilt is a row of chairs that were part of the seating in the original courthouse. The lobby ceiling is accented by elaborate carvings. All woodwork on the second floor is maple.

The population of Clay County increased approximately 30% since the 1901 Courthouse was completed. So in 1979, the Board of Photo courtesy of http://co.clay.ia.us/ Supervisors decided to renovate the existing courthouse and construct an administration building. The motion passed in August and $2.1 million was approved for the two projects. A dedication ceremony was held on September 26, 1982, and Clay County now has two buildings of which be proud.

A review of the history of Clay County would not be complete without looking at the history of one of the county’s greatest assets, the Clay County Fair. Information obtained from the fair’s website http://www.claycountyfair.com along with excerpts from Saluting 75 Years of People, Pride, Progress, depicts a brief history of how Clay County became home to the “World’s Greatest County Fair.” The Clay County Fair grew out of a series of homestead era fairs, agricultural society expositions, a state high-wheel-bicycle meet, a trotting association and community barbecues and picnics. The first fair of this type was held in Spencer in 1871; only five years after pioneer settlers drove their covered wagons from Wisconsin to Spencer Grove. It took place just south of where the Clay County Administration Building is now located. For entertainment there were running races with horses and riders from Sioux Rapids, Peterson and Emmetsburg. In 1879 the Clay County News announced that the Clay County Agriculture Board would hold its first annual fair at Spencer on September 17, 18 and 19. Apparently the Clay County Agriculture Board was a new group that helped to organize a new fair that differed slightly from the original group of

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1871. The fair in 1879 was held on what was known as the Lamberton homestead northwest of Spencer and comprised thirty acres of land.

As soon as the fair’s first building, the women’s building, was complete work would start immediately on the two ornamental entrance ways to the fair grounds. The automobile entrance would be located on Grove Street facing west, while the pedestrian entrance would be at the Clay County Fair Pedestrian Entrance southeast corner of the grounds, also on Grove Street. The entrance ways were to be built in the shape of an arch with towers at each side. Ticket booths were to be built in connection.

During those early years, various events were held on the fairgrounds. Bicycle racing became very popular, and the State Bicycle Championship was held on the half mile track in July of 1888. Early in the new century, Samuel Gillespie and James E. Steele wrote in the History of Clay County, “For the past three or four years another effort has been made by prominent citizens of Spencer to organize a fair association, and the project now seems on a fair way to fruition… Their plans are for Fair Vehicle Entrance the county to buy the necessary land, and then the (no longer there) association will do the rest. Two locations have been considered: A tract of land in the neighborhood of the tile factory on the east border of Spencer, and land belonging to Frank Tuttle in the northwest part of town.” However, nothing developed until 1913, when Spencer merchants organized a Clay County Fair and Picnic featuring a barbecue. Records show that it took one steer to feed all the hungry fair goers. All these events lead up to 1917 when the Clay County Fair Association as it is known today was organized. The first modern Clay County Fair was held in 1918.

According to data provided from the website http://www.iowaghosttowns.com/claycounty.html, there were many towns and villages that once occupied Clay County, many of which have long disappeared. Listed below are the names and descriptions of the towns and villages that once were a part of Clay County. Some of these towns or villages became a part of or absorbed into other cities that are still in existence today. The list below was taken from the Annuls of Iowa Vols. XVII & XVIII and used with permission from the State Historical Society of Iowa.

 ANNIEVILIE. In the southeastern part of section 12, Lincoln Township. Post office, 1871-1900.

 BRIDGEWATER. In the southeastern part of Lake Township, as shown on maps from 1873 to1887.

 CLARK. The first name given to the present town of Everly. Platted as Clark in 1881 and listed as Clark in the U. S. Postal Guide from 1885 to 1897.

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 CROMWELL CENTER. West central part of Summit Township. Post office, 1875-1930.

 DOUGLAS CENTER. In section 24, Douglas Township. Post office, 1871-75.

 FREEMAN. In the northeast corner of section 13, Sioux Township. Post office, 1871-75.

 HERDLAND. In section 14, Herdland Township. Post office, 1881-97.

 INGLEVILLE. In the northern part of Clay Township. Post office, 1875.

 PLATT. Listed in the U. S. Postal Guide as a post office in Clay County from 1893 to 1897, but not found on maps of that period.

 PROSPECT. Northwestern part of Meadow Township, as shown on maps from 1873 to 1885.

 SUMMIT. In section 24, Summit Township. Post office, 1875.

 TRIMELLO. In section 6, Clay Township. Post office, 1875-1900.

 WILLOW CREEK. In section 36, Clay Township. Post office, 1871-1900.

 YANKEE. In the north central part of Peterson Township. Post office, 1881-1900.

In addition to the previously listed ghost towns of Clay County as identified with information obtained from the State Historical Society of Iowa, Clay County officials also noted that the unlisted town of McClay had once existed. Additional research confirmed the ghost town of McClay previously did exist in Herdland Township. This information was obtained from the website http://iowa.hometownlocator.com. This website recognizes McClay as a historical populated place that is no longer visible today. th th  McCLAY. Located at the intersection of 470 Street and 260 Avenue in Herdland Township; approximately 3 miles west and 1 mile north of the City of Webb. The old town depot building was moved and can still be seen today in the City of Webb.

Figure 2 – Historic 1895 map of Clay County, Iowa

Source: 1895 Atlas Map, www.USGenNet.org copyright www.MemorialLibrary.com

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Places of Historic Significance in Clay County – National Register of Historic Places – According to the National Register of Historic Places, there are eight (8) buildings in Clay County carrying the distinction of being placed on the national register. These sites are important to the understanding and knowledge of the county’s founding forefathers and provide a glimpse into what life was like nearly a hundred years ago. Below is a listing of each of these nationally registered historic places with a brief background about their historical importance. Adams-Higgins House (1215 N Grand Avenue, Spencer) – This single family house located in Spencer was added to the national register in 1984. The house provides a historical account of late 19th century architecture in the Late Victorian and Classical Revival styles. The period of historical significance is 1875-1899, 1900-1924. Clay County Courthouse (W. 4th Street and 3rd Ave. W., Spencer) – The center of government in Clay County, the courthouse is an excellent example of Classical Revival architecture. Located in Spencer, this structure holds architectural and engineering significance in the county and was added to the national register in 1981. The period of historical significance is 1900-1924. Grand Avenue Historic Commercial District (Grand Avenue, Downtown Spencer) – This collection of historic downtown buildings was added to the National Register in 2004 and represents the Classical Revival and Romanesque architecture of the time. The District is also noted for its historical event of the great fire of 1931 that destroyed much of the downtown. The historic districts’ period of historical significance is 1900-1924, 1925-1949. Philip Kirchner and Anna Parrish, Log House (4969 120th Ave., Peterson) – This privately owned museum in rural Peterson was added to the National Register in 1993 for historical significance dating back to the original exploration and settlement of the county. The period of historical significance is 1850-1874. Little Sioux River Bridge (210th Avenue by Spencer) – This rural bridge was added to the National Register in 2004 and its historical significance is denoted through the bridge’s architecture and engineering. The bridge’s period of historical significance is 1900-1924. Logan Center School No. 5 (Jct. of 420th St and 310 Ave, Dickens) – This historical structure has served as a rural school, religious structure, rural meeting hall, and city hall. The rural school was added to the National Register in 2001, with the period of historical significance being 1975- 1899, 1900-1924. The historical significance of the structure is related to its architecture and the social importance of events conducted in this building. Seymour Ross Round Barn (off IA Hwy 374, Gillett Grove) – Added to the National Register in 2006, this buildings historical significance is related to the architecture of the round barn. The Round Barn’s period of historical significance is 1900-1924. Wanata State Park Picnic Shelter (S of Co. Hwy M27 and IA Hwy 10, Peterson) – This historic picnic shelter located in Wanata State Park was added to the National Register in 1990. The public works era shelter around the time of the great depression offers historical significance through the building’s architecture/engineering, as well as recognizing the social history and recreation significance of the area. The bridge’s period of historical significance is 1925-1949.

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Chapter 3. PLANNING BACKGROUND & PUBLIC INPUT

BACKGROUND OF COMPREHENSIVE PLANNING The Northwest Iowa Planning and Development Commission, formed in 1973, is responsible for coordinating activities in the region and assisting member governments with any technical or planning problems they may have. The formation of the Northwest Iowa Regional Planning Commission marked the first real effort of a genuine “regional” commission in Iowa. The principal purpose of the Planning Commission was to undertake planning studies on a regional basis and facilitate cooperation among the various governmental bodies within the region.

Clay County initiated its planning efforts in the spring of 1962 by participating in a 701 Housing and Urban Development (HUD) planning grant. The original planning effort in Clay County resulted in the county adopting its first zoning ordinance followed by the adoption of a land use plan. This process continues still today and will be reflected by the adoption of this current plan.

Over the course of the next three decades, the Clay County Planning Commission, Board of Adjustment and Board of Supervisors actively utilized the comprehensive plan in making land use decisions to guide zoning issues and control growth within Clay County. By the early 1990s, growth rates exceeded land use projections within the original planning document and several major revisions within the zoning ordinance and subdivision regulations became necessary. Therefore, by 1995, Clay County once again initiated working with the staff at Northwest Iowa Planning and Development Commission in completing an update of the county’s comprehensive plan and zoning ordinance.

During the fall of 2008, the Board of Supervisors indicated the need to update the comprehensive plan and substantially revise the zoning ordinance and subdivision regulations to reflect the trends, needs, and philosophies of current growth trends. The Board of Supervisors with guidance from the county zoning administrator sought the assistance of the regional Council of Governments (COG), of which Clay County is participating member. The Northwest Iowa Planning and Development Commission staff planners initiated the comprehensive plan update process in late 2008.

PUBLIC INPUT & DATA GATHERING Clay County officials, staff and the Planning & Zoning Commission took several initiatives to ensure that public input would be an integral part of the comprehensive planning process.

First, in an effort to better understand the current state of planning and development services occurring within Clay County, the planning staff at Northwest Iowa Planning & Development Commission provided the Clay County Zoning Administrator an informational questionnaire which is intended to offer the planning staff assistance in developing an overview of the current planning activities occurring in Clay County and planning services offered by the county. This survey was completed by the County Zoning Administrator in October 2008 and provided valuable input and data to initiate and begin the comprehensive planning process with the county’s Planning and Zoning Commission.

9 Clay County, Iowa 2010 Comprehensive Plan

Additionally, in November 2008, a Clay County Land Use Survey was prepared by Northwest Iowa Planning and Development Commission staff and distributed to members of the Clay County Planning & Zoning Commission, Board of Adjustment and planning staff. This survey was intended to gather information to facilitate a discussion on land use planning philosophies of the county and determine which land uses should receive the greatest or least amount of consideration for future planning in Clay County. The land use survey asked questions pertaining to agricultural, residential, commercial and industrial land uses, along with questions about natural resources and the environment and parks and recreation uses. Overall, there were nine (9) surveys completed and returned which provided a vast amount of valuable opinions and information which both directly and indirectly will provide assistance in creating and stating future land use policies for Clay County.

Furthermore, the Clay County has met nine (9) times beginning in September 2008 through February 2010. Each of these meetings was open to the public and a public notice was posted for the meeting. The general public had an opportunity to attend and offer comment at any one of the Planning Commission meetings in which the Comprehensive Plan was discussed. Specifically in August 2009, the Planning Commission spent the entire meeting reviewing the 1995 land use goals and objectives and prepared new land use goals and policies for the updated comprehensive plan. Additionally, the October and December 2009 meetings were spent reviewing, in detail, the proposed revised Clay County future land use map by the Planning Commission. In February 2010, a completed draft of the comprehensive plan document, goals and policies and the revised land use map were presented to the Planning Commission for review and consideration. In March 2010, the Clay County Planning and Zoning Commission held a public meeting in which the general public was offered a final opportunity to provide any public comment on the comprehensive plan prior to the Planning and Zoning Commission making its recommendation to submit the comprehensive plan to the Board of Supervisors for approval.

Finally, a great amount of public input for the comprehensive plan was provided by the 2009 Needs Assessment Statistical Report. During the spring of 2009, Clay County partnered with the City of Spencer, Clay County Community Foundation and the Clay County Housing Trust Fund to work with representatives from the Institute for Design Research and Outreach (IDRO), Iowa State University College of Design. A local steering committee was formed which worked to develop the survey and which questions would be asked on the survey. The overall intent of the survey was to gather public input to use as a guide in planning and decision making related to local services, amenities, needs and priorities of Clay County. The survey was officially distributed in June 2009. The results of the survey were then tabulated and the Clay County Needs Assessment Statistical Report was presented to Clay County and Spencer officials in October 2009. Some of the highlights of this Needs Assessment Report for Clay County include:

 63% of respondents rate their own community above average.  33% of respondents rate their own community as “one of the best in the county”  Most important factors in people’s decision to live in Clay County include - low crime rate - clean environment - a good place to raise children

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- affordable housing - quality of public education - not being overcrowded with people - a sense of community  Those who lived in Clay County the longest placed a greater emphasis on a safe community.  Five (5) measures of good quality of life in Clay County include - feeling safe - efforts to attract retail development - good quality of life - low crime rate - knowing many neighbors  Economic outlook, employment opportunities and social networking are perceived to be lacking in Clay County  Serious issues that affect the future of Clay County include: - lack of good, well paying jobs - high energy costs - health care costs and availability of health insurance - declining number of K-12 children - rising level of property taxes - drug abuse (particularly methamphetamines)  Nearly 70% of respondents contribute annually to charitable causes  County residents do not know the role of the Clay County Community Foundation and what it does for the county  Issues, programs or facilities in which Clay County residents would be willing to support with a donation if a permanent endowment in Clay County were to be established include: - children/youth activities - health care - senior care - job opportunities - emergency services - low or no cost programs for children  Internet service is readily available for Clay County residents. More than 70% have home internet service with half having wireless or high speed internet service.  Of those who responded to the survey, there were 75 households in Clay County that qualified for assistance from the Clay County Local Housing Trust Fund. Of these households, nearly two-thirds indicated their house was in need of repairs.

A copy of the complete 2009 Clay County Needs Assessment Statistical Report can be seen in Appendix D to this comprehensive plan.

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Chapter 4. AGRICULTURE

AGRICULTURAL ECONOMY Agriculture is historically the foundation of Clay County and remains today as one of the primary economic sectors. Although there is more than 328,000 acres of land in Clay County, of which statistics show nearly all of this land is utilized for agricultural purposes, the number of farms continues to decline. Economies of scale continue to dictate fewer farms remaining in operation, with remaining operations continuing to grow larger.

Table 1 - Farm Acres in Clay County and Iowa, 1997 and 2007

Clay County State of Iowa (ooo’s)

1997 2007 %change 1997 2007 %change

Total Farm Acres 285,829 328,216 14.83% 31,166 30,747 -3.82% Cropland Acres 262,903 304,774 15.93% 26,821 26,316 -1.88% Harvested Cropland Acres 244,994 293,049 19.61% 23,323 23,799 2.04% Pasture/Non-Cropland Acres 22,926 23,442 2.25% 4,345 4,158 -4.30% Irrigated Land Acres 844 490 -41.94% 125 189 51.2% Source: 1997 & 2007 Census of Agriculture, USDA, National Agricultural Statistics Service

The data in the table above shows that while Clay County is continuing to increase its total number of farm acres and total cropland acres, the State of Iowa is decreasing in its total farm acres and cropland acres. This trend may point towards the urban sprawl issues the State of Iowa faces with the loss of agricultural lands near and surrounding the state’s metropolitan centers. The numbers above clearly show the rural and agrarian nature of Clay County. The number of acres devoted to harvested cropland in Clay County is up nearly 20 percent, while the State of Iowa experienced a growth of only 2% in this area. One interesting trend shown in the table above is that while irrigated land acres have decreased by nearly 42% from 1997 to 2007, the State of Iowa increased its number of irrigated land acres by more than 51% over this same time frame.

The data presented above and on the following page comes from the 1997 and 2007 U.S. Census of Agriculture as summarized by the USDA National Agricultural Statistics Service. This data provides information on the distribution of farms by farm size (in acres). In 2007, the smallest farms (1-9 acres in size) accounted for 10.8 percent of Clay County farms, compared to 9.4 percent statewide. In contrast, 28.6 percent of farms in Clay County had more than 500 acres. Statewide, the percentage of farms in this category was 20.8 percent.

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Table 2 - Number of Farms in Clay County and Iowa, 1997 and 2002 Clay County Iowa Farms 1997 2007 1997 2007 Size in acres N % N % N % N % 1 to 9 37 5.54% 86 10.78% 5,049 5.56% 8,709 9.38% 10 to 49 69 10.33% 112 14.04% 11,580 12.75% 17,824 19.20% 50 to 179 151 22.60% 180 22.56% 24,525 27.01% 24,692 26.59% 180 to 499 192 28.75% 192 24.06% 28,918 31.85% 22,354 24.07% 500 to 999 149 22.30% 138 17.29% 14,833 16.34% 11,826 12.74% 1,000 or more 70 10.48% 90 11.28% 5,887 6.48% 7,451 8.02% Total Farms 668 100.0% 798 100.0% 90,792 100.0% 92,856 100.0%

This page presents data from the 1997 Figure 3 – Farm Size in Clay County by # of Acres, 2007 and 2007 Census of Agriculture on the number and size of farms for Clay County and the State of Iowa. Farmland comprised slightly more than 90 percent of the land area in Clay County, relative to 88 percent statewide. Recent data shows a reported 798 farms in Clay County, with an average of 411 acres per farm. This average farm size is more than 17% larger than the statewide average of 350 acres per farm. However, while the average farm size throughout the entire state has increased by 15.9 percent from 1997, Clay County has actually decreased from an Source: www.seta.iastate.edu/takechage/, average of 451 acres per farm in 2002 to 411 Iowa State University, 2007 acres per farm in 2007, a decrease of 9 percent.

Table 3 - Livestock Inventories for Clay County, 1997-2007

Livestock Inventories 1997 2002 2007 Farms with Hog/Pig Inventories 133 265 83 Number of Hogs/Pigs 108,489 531,966 559,001 Farms with Cattle/Calf Inventories 176 339 199 Number of Cattle/Calves 16,987 70,074 32,341 Farms with Dairy Cattle Inventories 3 8 - Number of Dairy Cattle - 297 - Source: 2002 & 2007 Census of Agriculture, USDA, National Agricultural Statistics Service

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Table 4 - Harvested Crops in Clay County, 2002-2007 Harvested Crops 2002 2007 # Farms 480 522 Corn # Acres 133,323 162,031 # Bushels 19,111,076 25,227,512 # Farms 476 464 Soybeans # Acres 127,467 124,655 # Bushels 5,363,547 6,127,045 # Farms 27 10 Oats # Acres 456 195 # Bushels 36,740 14,400 Source: 2002 & 2007 Census of Agriculture, USDA, National Agricultural Statistics Service

As indicated in the livestock table from the previous page and the table above, there are very distinct trends that appear relative to agricultural livestock commodities and harvested crops in Clay County. First, the number of farms with inventory for each of the three major livestock categories (hogs, cattle and dairy cattle) was dramatically different in each of these five year spans. Overall, it appears that the number of farms with hogs and dairy cattle decreased in Clay County, whereas the number of farms with beef cattle increased. In regards to the number of livestock maintained in Clay County farms, the number of beef cattle nearly doubled in ten years (1997-2007). However, when considering the increase in the number of hogs as a livestock commodity in Clay County, the number of livestock has increased 415% or more than quadrupled the amount of hog livestock in the county from 1997-2007. The table above shows the difference in harvested crops from Clay County farms between 2002 and 2007. Over this five year span, the number of farms harvesting corn in 2007 increased by nearly 9 percent and harvested an additional 6.1 million bushels of corn for an increase of 32% from 2002. Conversely, the number of farms harvesting soybeans during this time decreased by 12 farms or 2.5 percent. Also, the number of soybean acres decreased by more than 2,800 acres but the amount of bushels of soybeans harvested increased by more than 763,000 bushels. This statistic is a testament to the advances in better hybrids of crop seed and farming technology to improve upon the number of bushels harvested with fewer farms and less land.

FARM INCOME Segments of a report, titled “A SocioEconomic Profile, Clay County, Iowa” from February 2009, developed by Headwater Economics, have been included along with tables and charts depicting farm income trends in Clay County. According to the report, farm income figures presented in the following charts and tables reflects income from farming enterprises, or income of the business. For purposes of the report and for this comprehensive plan, the term “farm” includes farming and ranching, but not agricultural services such as soil preparation or veterinary services. Farm income of businesses differs from personal farm income because it also includes government payments, rent, and the value of inventory and production expenses. Additional information about the report can be viewed at www. headwatereconomics.org.

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Table 5 -

Figure 4 – Gross Income and Net Income from Farming

AGRICULTURAL LAND VALUES With changing trends in farming experienced in Clay County, northwest Iowa, and the state, continued shifts in farming can be expected in the future. One of the criteria that will have a significant impact on future trends in the agricultural economy in Clay County is the value of agricultural land. The land value measure dictates to farmers and farm corporations how much equity they have in their land based against their debt and often times is the factor allowing agricultural operations to borrow funds for new equipment and operations. Clay County is fortunate to have some of the most nutrient rich black topsoil in the state, therefore keeping land values higher than statewide averages. The following data explores the difference between agricultural land values between Clay County, the northwest Iowa district, and the state of Iowa

15 Clay County, Iowa 2010 Comprehensive Plan as a whole. Clay County maintains a high level of agricultural land value due primarily to the natural presence of good topsoil rich in nutrients.

Table 6 - Clay County and Iowa Agricultural Land Values, 1999-2008 Clay County NW Iowa Iowa Year (avg. land value) District (avg. land value) (avg. land value) 2008 $5,189 $5,395 $4,468 2007 $4,506 $4,699 $3,908 2006 $3,612 $3,783 $3,204 2005 $3,281 $3,393 $2,914 2004 $2,974 $3,118 $2,629 2003 $2,644 $2,683 $2,275 2002 $2,468 $2,434 $2,083 2001 $2,174 $2,240 $1,926 2000 $2,139 $2,198 $1,857 1999 $2,033 - $1,781 Source: http://www.extension.iastate.edu/landvalue/ - Iowa State University Extension, 2008

This data originates from the Iowa Land Value Survey, compiled by Michael Duffy, Iowa State University Extension farm management specialist and proferssor of economics. This survey has been conducted annually since 1941 and, according to ISU Extension, is the only statewide survey that collects information on land values in each of Iowa’s 99 counties. The following figure shows an estimated 155 percent increase in agricultural land values between the ten year span of 1999-2008. Furthermore, dramatic increases have been experienced since 2005, beginning when land values jumped 10.1 percent between 2005-2006. This was followed by a significant 24.8 percent increase between 2006-2007. Finally, another 15.2 percent increase occurred from 2007-2008.

Figure 5 - 1999 to 2008 Agricultural Land Values for Clay County and Iowa 6,000 $5,189 ClayCo. 5,000 $4,506 Iowa 4,000 $3,612 $3,281 $2,974 3,000 $2,468 $2,644 $2,033 $2,139 $2,174 2,000

1,000

0 1999 2000 2001 2002 2003 2004 2005 2006 2007 2008

Source: Iowa Land Value Survey, Iowa State University Extension, 2008

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The maps presented below, also derived from the ISU extension’s Iowa Land Value Surveys, depict average land values across the State of Iowa during 1999-2000 as compared to 2007-2008. As indiciated on the map, it is clear to see that Clay County is situated amidst some of the richest, prime agricultural soils found across the nation. Northwest Iowa, on average, offers the highest land values found across the state.

Figure 6 - 2000 and 1999 Land Values (Northwest Iowa) 2008 and 2007 Land Values (Northwest Iowa)

Figure 7 - 2008 Iowa Land Values for all 99 counties in Iowa

GRAIN PROCESSING FACILITIES On the following page is an Iowa Department of Transportation map identifying grain facilities and shipment capacities within Clay County. This data shows the agricultural infrastructure and rail transportation network in place in Clay County. In Clay County alone, there are three (3) primary gain loading facilities with a total storage capacity of up to 7.6 million bushels of grain. By far the largest grain storage and transportation facility in Clay County is the Everly facility

17 Clay County, Iowa 2010 Comprehensive Plan which can handle up to 49 hopper car trains and has a storage capacity of more than 4.4 million bushels alone. Grain processing facilities are also located in Spencer and Dickens.

Figure 8 - Clay County Grain Storage and Transportation Map

VALUE ADDED AGRICULTURE In a 2004 report issued from the Iowa Agricultural and Home Economics Experiment Station, value added agriculture in Iowa has focused on working with producer groups and individual entrepreneurs to build long term economic, environmental and socially sustainable capacities. Emphasis has been on working with existing value-added groups, development of value chains, and working to develop quality systems to ensure food safety and accountability. Future value added programs being explored in Iowa, specifically in partnership with the cooperation of Iowa State University and the Iowa Agricultural Experiment Station, include capacity for building and training for value added agricultural groups, with a special emphasis on beginning farmers. Other efforts taking place include developing niche value markets for specialized products to assist producers in determining the highest market for their products. Clay County has taken extensive measures to create an environment that is friendly and inviting for value added agricultural enterprises. According to the Iowa Lakes Corridor website, http://www.lakescorridor.com/, the four county region including Clay County contains a diverse group of employers of which many of the region’s major employers are value added industries. Those major employers in Clay County identified as value added industries include: . Hy-Line International in Spencer is a poultry and hatching industry . Great Lakes Co-op in Every specializes in animal feed and fertilizers for agricultural purposes . QRS/QPS in Spencer is a meat processing and refrigeration storage industry

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ALTERNATIVE ENERGY Wind Generation From the website www.itsgood4us.com, a great deal of information pertaining to alternative energy sources and its benefits is provided to consumers of energy. Wind energy is clean, renewable, pollution free and produced locally with no imports. Consistent, strong winds are located in the interior of the continent in places like north central Iowa, west Texas, South Dakota, etc. In the U.S., today, only 1% of the nation’s energy is produced by the wind, compared to Denmark which produces 20%. Across northwest Iowa, wind generation farms are increasing becoming the norm with several hundred wind generators located within close proximity to Clay County. However, to date, there are no commercial wind generators or wind farms located within Clay County. Local leaders and government officials both desire to explore this alternative energy source and encourage the recruitment and development of wind generation companies, if prevailing conditions exist.

Ethanol According to the website: http://www.iowacorn.org/, information pertaining to the state’s renewable energy, ethanol and corn industries mentions several points about Iowa’s ethanol production and benefit to the state and Nation. Iowa’s ethanol industry statistics as published from a May 2009 article, “Ethanol- Iowa’s the leader!” . Iowa’s ethanol industry can produce more than 3.27 billion gallons annually, using over 1 billion bushels of corn . 4 wet mills producing 445 million gallons . 35 dry mills producing 2.5 billion gallons . 39 total Iowa ethanol plants . 1 under construction/expansions expected to produce 275 million gallons . Combined production & construction/planning capacity expected at 3. 8 billion gallons, using 1.4 billion bushels (over 50% of the 2007 crop) . Iowans bought over 1.2 billion gallons of ethanol blends last year . Ethanol’s market share now equals 78% of Iowa fuels . Iowa E85 sales set monthly sales records this year - 58% growth in sales from 2006 to 2007 (3,420,557 in 2007 vs. 1,975,359 in 2006) . 114 E85 pumps in Iowa now (55 in 2006) . 1 out of every 10 vehicles purchased in 2007 was a FFV (flex fuel vehicle) . As of September 2007 Iowa had approximately 95,000 FFV’s (flex fuel vehicles) on the road

Currently, there is no ethanol producing facilities located within Clay County. However, within the counties adjacent to Clay County, there are 4 operating ethanol plants. These facilities are located within or near the cities of Emmetsburg in Palo Alto County, Albert City in Buena Vista County, Hartley in O’Brien County and Superior in Dickinson County. In the early days of ethanol, for every one unit of energy it took to plant, harvest and process ethanol, it had a negative “energy balance.” However, since those days, steady improvements have been made in corn yield and efficiency of harvesting and ethanol processing. According to www.itsgood4us

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.com, latest studies shows corn ethanol with a positive energy balance of 1:1.64; a 64% net increase in energy. Also, there are two developments that promise dramatically higher yield; sweet sorghum ethanol and cellulosic ethanol.

Modern gasoline engines are now set up to run E10. In Iowa, about 60% of the gasoline sold is E10. To use higher percentages like E85, engines need appropriate seals, hoses and engine settings (timing, etc.). Vehicles set up to run E85 have been selling for a number of years and are sold as "Flex Fuel" vehicles. Such vehicles have a fuel sensor in the fuel line to monitor the mix of gasoline and ethanol present and adjust the engine appropriately for the fuel being used. The stimulus for these vehicles being available was the 1992 EPA act that mandated government vehicle fleets use renewable fuels. There are people that have such Flex Fuel Vehicles (FFVs) and are not even aware they can run E85.

Soy Biodiesel Standard diesel fuel is made from petroleum, but is heavier and less refined than gasoline. According to www.itsgood4.us.com, biodiesel is a fuel suitable to run in diesel engines that is derived from contemporary sources of oil like soybean oil, canola oil (from rape seed) or even modern algae. Since biodiesel has not collected impurities over millions of years, it is a very clean and pure fuel source to burn. Biodiesel is so similar to petroleum diesel fuel that no modification to the diesel engine is required. Soy biodiesel is becoming readily available, yet it is far from being on every corner gas station. Several locations in Clay County will deliver soy biodiesel to the farm. However, to purchase soy biodiesel at the pump for a car, truck, or other equipment will be a difficult endeavor. Currently, no biodiesel plants are located within Clay County. However, one existing and one future soy biodiesel plants are located in counties adjacent to Clay County.

Below is a map, provided by the Iowa Department of Transportation, which shows locations of both existing and proposed ethanol and soy biodiesel plants as of July 2008.

Figure 9 – Northwest Iowa Biodiesel and Ethanol Processing Plants, 2008

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Chapter 5. PHYSICAL FEATURES

Physical features, an important element in land use planning, has been largely ignored in the past in determining future land uses. Modern emphasis on environmentally sensitive areas and the availability of advanced information on geological structure and soils have made it possible to place more emphasis on physical features analysis in land use planning. Climate, location, geologic structure, topography, drainage, surface waters, and soils each uniquely affect the types of land use that are best suited for a particular tract or parcel of land. Some of these factors, such as topography, drainage or soils should be considered more intently when determining acceptable land uses for an area. The purpose of this section is to determine natural conditions, as they relate to Clay County, so adequate consideration may be given when determining future land uses.

GEOGRAPHIC LOCATION Clay County, located in northwest Iowa, is in the second tier of counties south of Minnesota and in the third column of counties east of the South Dakota border. The county is comprised of a total land area consisting of approximately 364,160 acres, or 569 square miles. Additionally, there is an estimated 2,304 acres of water or 3.6 square miles of lakes, marshes, wetlands, ponds, and pits. The average elevation of Clay County is 1,315 feet above sea level. The nationwide average elevation is 1,062 feet above sea level. In comparison, the highest elevation in the State of Iowa is at Hawkeye Point in Osceola County (west of Dickinson County in northwest Iowa) at 1,670 feet above sea level and the lowest elevation in the State is at 475 feet above sea level located along the Mississippi River near Keokuk in southeast Iowa.

Clay County is bordered by Dickinson County to the north, O’Brien County to the west, Buena Vista County to the south and Palo Alto County to the east. The county is divided nearly equally east/west by U.S. Highway 71 bisecting the community north/south. Similarly, U.S. Highway 18 divides Clay County by bisecting the county east to west. The largest city within Clay County is the City of Spencer at 11,317, which is also the county seat of Clay County.

The nearest city of 10,000 + population is Storm Lake, Iowa (pop. 10,076) – 37 miles south The nearest city of 50,000 + population is Ames, Iowa (pop. 50,731) – 160 miles southeast The nearest city of 200,000 + population is Omaha, Nebraska (390,007) – 172 miles southwest The nearest city of 1,000,000+ population is Chicago, Illinois (2,896,016) – 470 miles east

CLIMATE Climate becomes a major factor in land use planning when it relates to agricultural production and construction seasons for roads and buildings. Climate limits agricultural, construction and tourism related activities to certain times of the year. In the winter it is generally cold, while quite hot temperatures and occasional cool spells characterize the summer. During the warmer months, the trend of warm, moist air masses from the Gulf of Mexico push north from the southern states creating a system of rain and thunderstorm, which are often heavy. According to climate data obtained from Sperling’s Best Places website at http://www.bestplaces.net, the total annual rainfall precipitation is 28 inches, as compared to 36.6 inches for the national average. The annual average snowfall in Clay County is 34.5 inches which is higher than the national average

21 Clay County, Iowa 2010 Comprehensive Plan of 25.2 inches. The total number of precipitation days in a calendar year is 208. In the winter, the average January low is 5.5° F. On the contrary in July the average highs are 85.5° F. This temperature range allows for a frost-free growing season of approximately 150 days. The prevailing wind is from the northwest. The overall climate comfort index as identified by climatologists ranks Clay County at 45, which compares to the national climate index of 44. The following climate charts represent the averages in Clay County based on data reported by more than 4,000 weather stations across the nation. The data seen below, as presented by “City- Data.com” is representative of the climate in Clay County, Iowa.

Figure 10 - Average Climate Trends in Clay County

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LANDFORMS & LANDCOVER As defined by the Iowa Department of Natural Resources, a “Landscape” is a collection of shapes or landforms. Iowa’s landscape varies widely in appearance from place to place across the state. Individual landform shapes reflect the diverse effects of deposits left by glaciers, wind, rivers, and seas in the geologic past. Examples include loess hills, moraines, kettles, kames, sinkholes, springs, algific slopes, and entrenched valleys. The landscape in Clay County varies greatly with the highest elevation or topography in the northwest portion of the county. The elevation then declines to the southeast toward the Little Sioux River valley.

Clay County lies within two distinct land formations in the State of Iowa. Western two-thirds of the county, or primarily that land lying west of the Little Sioux River corridor, is located within the “Northwest Iowa Plains” landform region. The eastern one-third of the county or those properties lying primarily east of the Little Sioux River are located within the “Des Moines Lobe” region. As summarized by the Iowa Department of Natural Resources from information obtained from Landforms of Iowa by Jean C. Prior, the Northwest Iowa Plains landform is characterized by vigorous erosion that accompanied the glacial movements, which also produced open rolling hills across this region. Loess type soils area abundant, a reflection of its nearness to the Missouri and Big Sioux River valley sources. Land elevation is uniformly higher and precipitation lower than elsewhere in Iowa.

Figure 11 - Landform Regions of Iowa

Clay County

Other characteristics of the Northwest Iowa Plains landform offer long gentle slopes and wide shallow valleys. Since the Northwest Iowa Plains landform has gone much longer without glaciating, versus the Des Moines Lobe landform, drainage patterns are defined and well established and ponding areas are not as prevalent.

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The Des Moines Lobe region of Iowa is summarized in Landforms of Iowa, by the effects from the last glacier to enter Iowa. This effect to the Iowa landscape across north central Iowa advanced in a series of surges beginning just 15,000 years ago. By 12,000 years ago, the ice sheet was gone, leaving behind a poorly drained landscape of pebbly deposits from the stagnant decaying ice, sand and gravel from swiftly flowing melt water streams, as well as clay and peat from glacial lakes.

Below is the 2002 Landcover Map from the Iowa Geological Survey Bureau, depicting the landcover and land uses for Clay County. The image data depicting the landcover classes is derived from 2002 satellite imagery. The map was prepared by the Iowa Department of Natural Resources – Geological Survey during 2002 and 2003. The completed data was published in April 2004 and made available on the Iowa Geographic Survey Bureau’s website at http://www.igsb.uiowa.edu/nrgislibx/. According to the Iowa Department of Natural Resources, the purpose of the landcover research and mapping was created to carry out the agency’s responsibilities related to management, protection and development of Iowa’s natural resources. The estimated accuracy of the data presented on the following map is +/- 30 meters.

Figure 12 - Landcover/ Land Use Map of Clay County

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SOILS Soil conditions determine several important land use decisions when planning where future growth and development will occur. Where urban sprawl or suburban growth occurs on a fragile and balanced ecosystem the types of soils and their suitability or lack thereof to development becomes of great importance. Factors such as structure suitability, percolation rate, water holding capacity, productivity, slope, and nutrient composition are all important in determining future growth patterns. These factors all have various effects on placement of public utilities, residential and commercial development, construction or placement of recreational areas, as well as local agricultural usage.

According to the Soil Survey of Clay County completed by the U.S. Department of Agriculture, there are eight (8) major soil associations within the county. They include the McCreath-Gillet Grove-Sac Association, Willmonton-Ransom-Afton Association, Moneta-Cornell Association, Wadena-Cylinder-Biscay Association, Colo-Zook-Spillville Association, Everly-Letri-Fostoria Association, Clarion-Nicollet-Webster Association, and the Bellman-Fostoria-lacustrine substratum Waldorf Association. Identified in the soil legend on the following page is a brief description of each of the soil associations.

As seen in the landforms map earlier in this chapter, those soils located east of the Little Sioux River corridor which are also located in the Des Moines Lobe land formation are primarily of the Clarion-Nicollet-Webster Association of soils. The remaining seven soil association and their respective soil classifications are interspersed throughout the western two-thirds of the county, which has been identified as being located in the Northwest Iowa Plains landform. The more strongly sloping areas are located adjacent to the Little Sioux River corridor and its tributaries. These soils are generally strong sloping loamy soils formed in glacial sediments and the underlying is sand and gravel. Soils in this area require special treatment to allow most agricultural uses due to slope and texture. In most instances, the areas with strongly sloping soils are most likely suited to remain in a natural state, greenspace, woodland or for pasturage. Terracing can sometimes be used for row cropping if the subsoil is not disturbed. Furthermore, urban developments such as housing and/or commercial development can also have a detrimental affect on fragile soil types or areas of steep slope such as river corridors. These areas are often times attractive to suburban or sprawl developments due to their natural characteristics and scenic views. However, developments along river corridors and other fragile topographical areas should be carefully managed so as not to compromise the natural resources of the county.

The general soil map, show on the following page, as published by USDA NRCS, shows large areas with distinctive soils. These large areas or tracts of common soil types are called associations. Each soil association is its own unique landscape with typically one or more major soil types and several minor or miscellaneous soil types scattered throughout the area. The general soil map can be used to compare the suitability of large tracts of land suitable for varying types of development as well for general land use discussions. When parcels of land are being reviewed for zoning compliance or building permits, the proposed use should be cross referenced in the soil survey with respects to the particular soil type being reviewed. If the Zoning Administrator or Planning and Zoning Commission are unsure of how to interpret the soil survey on a particular issue, the Clay County Soil Conservation Service office should be consulted.

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Figure 13 - General Soil Map of Clay County, Iowa

26 Clay County, Iowa 2010 Comprehensive Plan

A listing of soil types with detailed information may be obtained in the Soil Survey of Clay County, Iowa through the USDA Natural Resource Conservation Service. Furthermore, attached as Appendix A to this plan, is a copy of detailed schedules of soil suitability depending upon types of use.

Table – Soil Associations in Clay County – Soil Properties 1. McCreath-Gillet Grove-Sac Association of Soils This soil association is nearly level to moderately sloping, moderately well drained to poorly drained, silty soils that formed on loess overlying Wisconsin till; on uplands.  This soil association comprises about 17% of Clay County.  The McCreath soils comprise 40% of the soil types in this classification  The Gillet Grove soils comprise 30%  The Sac soils comprise 13%  Soils of minor extent comprise 17%

2. Wilmonton-Ransom-Afton Association of Soils This soil association is nearly level to gently sloping, somewhat poorly drained and poorly drained, loamy and silty soils that formed in loamy pedisediments overlying calcareous till and in loess overlying Wisconsin till; on uplands.  This soil association comprises about 20% of Clay County.  The Wilmonton soils comprise 19% of the soil types in this classification  The Ransom soils comprise 17%  The Afton soils comprise 10%  Soils of minor extent comprise 54%

3. Moneta-Cornell Association of Soils This soil association is strongly sloping to very steep, well drained and moderately well drained, loamy and silty soils that formed in calcareous Wisconsin till and in loess and loamy sediments overlying calcareous Wisconsin till; on uplands.  This soil association comprises about 6% of Clay County.  The Moneta soils comprise 64% of the soil types in this classification  The Cornell soils comprise 1%  Soils of minor extent comprise 35%

4. Wadena-Cylinder-Biscay Association of Soils This soil association is nearly level to gently sloping, well drained to poorly drained, loamy soils that formed in loamy alluvium underlain by sand and gravel; on stream terraces and outwash plains.  This soil association comprises about 15% of Clay County.  The Wadena soils comprise 41% of the soil types in this classification  The Cylinder soils comprise 19%  The Biscay soils comprise 16%  Soils of minor extent comprise 24%

5. Colo-Zook-Spillville Association of Soils This soil association is nearly level, somewhat poorly drained and poorly drained soils that formed in silty and loamy alluvium; on bottom land.  This soil association comprises about 4% of Clay County.

27 Clay County, Iowa 2010 Comprehensive Plan

 The Colo soils comprise 24% of the soil types in this classification  The Zook soils comprise 4%  The Spillville soils comprise 4%  Soils of minor extent comprise 68%

6. Everly-Letri-Fostoria Association of Soils This soil association is nearly level to strongly sloping, moderately well drained to poorly drained, loamy soils that formed in eolian material and pedisediments overlying till; on uplands.  This soil association comprises about 10% of Clay County.  The Everly soils comprise 58% of the soil types in this classification  The Letri soils comprise 32%  The Fostoria soils comprise 6%  Soils of minor extent comprise 4%

7. Clarion-Nicollet-Webster Association of Soils This soil association is nearly level to moderately sloping, moderately well drained to poorly drained, loamy soils that formed in till or in local alluvium derived from till; on uplands.  This soil association comprises about 25% of Clay County.  The Clarion soils comprise 40% of the soil types in this classification  The Nicollet soils comprise 18%  The Webster soils comprise 15%  Soils of minor extent comprise 27%

8. Belmann-Fostoria, lacustrine substratum-Waldorf Association of Soils This soil association is nearly level to gently sloping, poorly drained and somewhat poorly drained, silty and loamy that formed in lacustrine sediments and in local alluvium overlying lacustrine sediments; on glacial lake plains.  This soil association comprises about 3% of Clay County.  The Belmann soils comprise 24% of the soil types in this classification  The Fostoria, lacustrine substratum soils comprise 20%  The Waldorf soils comprise 19%  Soils of minor extent comprise 37%

For the past several years, Clay County Zoning officials have based regulatory zoning decisions in agricultural zoned areas based upon a numerical classification of soil groupings in which prime agricultural soils were identified. This information was taken from the previous edition of the Clay County Soil Survey completed in 1969. When the updated Soil Survey was completed by NRCS for Clay County in 2005, the numerical soil suitability classifications had changed and the NRCS no longer used this method of classifying soils. Therefore, when meeting with the County Planning and Zoning Commission during the fall of 2009, the Commission and Zoning Administrator made a policy decision to change the method of determining prime agricultural soils in Clay County. Effective upon the adoption of the this comprehensive plan and update of the County Zoning Ordinance, Clay County will now use a Corn Suitability Rating (CSR) as one factor in determining prime agricultural soils. The Planning Commission felt that simply basing all of the county’s future land use and zoning decisions on a numerical system did not take into consideration any mitigating circumstances. Therefore, the CSR along with a review from the

28 Clay County, Iowa 2010 Comprehensive Plan

Clay County Zoning Administrator and recommendation of the Planning and Zoning Commission, if needed or requested, will result in the final determination of prime agricultural soils in Clay County. Below is listing of those soil types in Clay County with a CSR of 65 or higher. This was one benchmark established by the Zoning Administrator and the Planning Commission in determining a starting point for classifying prime agricultural lands in Clay County. Other mitigating factors of the land and proposed development will play a significant role in making the final determination of prime agricultural soils. However, the CSR rating is simply one factor to assist the county with making the determination of prime agricultural soils. Soil Types listed in the following table are in order from the highest CRS rating to the lowest, down to a minimum of 65.

Table 7 - Clay County Corn Suitability Rating for soils over 65 CSR.

Soil Name Soil Number Corn Suitability Rating McCreath 1091 83 Nicollet 55 82 Ransom 282 81 Coland 135 78 Galva (terrace) 810 78 Annieville 928 78 Gillett Grove 1092 78 Webster 107 77 Rushmore 191 76 Terril 27B 75 Afton 31 75 Wilmonton 456 75 Spillville 485 75 Clarion 138B 74 Wilmonton 455 74 Colo 133 73 Canisteo 507 73 Galva (terrace) 810B 73 Annieville 928B 73 Ocheda 1385 73 Letri 397 72 Fostoria 879 72 Sac 77B 71 Cylinder (32-40” sand/gravel) 203 71 Biscay 259 70 Fostoria (lacrustrine substratum) 375 70 Wacousta 506 69 Ocheyedan 878 69 Belmann (gypsum phase) 1053 69 Zook 54 68 Everly 577B 68 Calco 733 68 Havelock 735 68 Ocheyedan (lacrustine substratum) 379 67 Collinwood 384 67 Wadena 308 65 Talcot 559 65

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Prior to non-agricultural uses being permitted to build in an agricultural zoning district, the soil should be less than a CSR of 65. If the soil type is above a CSR of 65, the Zoning Administrator will make the determination of prime agricultural soils based upon other mitigating factors. If there is uncertainty as to the determination of prime agricultural soils, based upon the Zoning Administrator’s research and consideration of CSR and other mitigating factors, then the Zoning Administrator can refer the decision to the Planning Commission for review and recommendation of a determination. In general, if the soil type is above a CSR of 65, then other mitigating circumstances should be considered prior to approving non-agricultural uses to build in an agricultural zone. Non-agricultural construction can occur on soils of more than 65 CSR; however, the county zoning staff should document what mitigating factors contributed to the determination of non-prime agricultural lands.

The following information was obtained from the Soil Survey of Clay County, Iowa published by the USDA Natural Resources Conservation Service, and summarizes why soil types and soil conditions may prove beneficial to both daily and long term planning efforts in Clay County.

How Soil Surveys Can Help Farmers To stay in business, farmers have to evaluate important developments in agricultural management. Farm production depends largely on fitting soil management practices to the soil properties as accurately as possible. It is the right combination of a number of practices that gets optimum results. Researchers try various combinations of fertilizers, tillage methods, water management, and conservation measures. Combinations that produce the greatest yields at the least cost on soils at experiment stations can be expected to give equally good results on similar soils elsewhere. Soil descriptions outlined in the Clay County Soil Survey can aid in evaluating prospective changes in management of soils. Crop yields: Estimated yields of major crops under a high level of management are included in published soil surveys. Estimated yields can help calculate approximate returns expected on soils and determine whether a high level of management would increase yields enough to pay the extra cost. Conservation plan: A soil survey can help determine how to use soils without damage. It also helps determine conservation measures needed to control erosion and maintain or increase productivity. Reclaiming land: Some eroded soils respond readily to soil treatments, such as fertilizer, lime, and manure. A soil survey can help decide whether added treatment to reclaim soils is likely to succeed. Waste disposal: Feedlots, poultry plants, and dairy farms dispose of manure and other wastes into soils. A soil survey helps determine how much waste the soils can absorb and in what form.

Land Use Planners (County Planning Commission and/or Zoning Administrator) Soil surveys assist planners to make and substantiate decisions that local government officials translate into zoning ordinances, building permits, sewer projects, and other regulations. Information about soil limitations for given uses helps prevent major mistakes in land use and unnecessary costs to individuals and the county. Soil surveys help in determining flood prone areas, and identify hazards that affect such areas. In many states soil surveys are used to guide

30 Clay County, Iowa 2010 Comprehensive Plan decision-makers in restricting the use of flood plains for housing, septic tank fields, and other intensive development. Zoning areas for housing, recreation, commercial, and other kinds of development should take account of the suitability and limitations of soils for such uses. Soil surveys describe soil properties in detail and can help planners establish general patterns of soil suitability and limitations for various land uses.

Septic tank absorption fields do not work in wet or impermeable soils. Soil surveys provide detailed descriptions of soil properties that can be used to determine the suitability of areas for absorption fields. They indicate soil hazards that affect absorption fields, such as slow permeability caused by high clay content, the presence of a high water table, or excessive permeability that may allow effluent to pollute ground water. Prime farmland can be identified through use of soil surveys. Other areas suited to development and not so well suited to farming may be selected for development instead. In planning uses for specific areas, an onsite investigation by a trained professional can determine if there are any soil hazards or limitations, and whether these can be overcome by corrective measures.

ACQUIFERS AND GROUND WATER In the Iowa Department of Natural Resources’ book Iowa’s Groundwater Basics - A Geological Guide to the occurrence, use & vulnerability of Iowa’s aquifers, Clay County is located within the Northwest Iowa Groundwater Province. Groundwater sources in northwest Iowa can generally be characterized as “fair” in terms of availability and quality. However, there are fewer options presented in northwest Iowa in comparison to those located in central or northeast Iowa. Water sources in Clay County are typically sought through two major sources; 1) Surficial Aquifers (shallow aquifers) including alluvial aquifers and 2) the Dakota Aquifer (deep aquifer).

Surficial Aquifers: Figure 14 - Alluvial Aquifers in Iowa Located beneath river valleys are shallow sand and gravel deposits containing alluvial aquifers or shallow well aquifers. These aquifers are an important source of water supply to many agricultural and rural uses; however, their extent of usage is limited to the river valley corridors. To the left is a map showing alluvial aquifers across the state of Iowa. One advantage to these water sources is that they are typically less than 100 feet deep and relatively easy to access. On the other hand, the shallow depths and their porosity make them vulnerable to seasonal precipitation conditions such as drought or flooding. Also, shallow aquifers are much more susceptible to contamination issues.

31 Clay County, Iowa 2010 Comprehensive Plan

Dakota Aquifer: The Dakota aquifer is comprised of sandstone deposits 200 to 300 Figure 15 - Dakota Aquifer of Iowa feet thick, providing a quality water supply to many rural and community water supplies across northwest Iowa. The water sources from this aquifer are often times 100 feet to 600 feet deep and typically produce 100 to 500 gallons per minute. The downfall to this deep aquifer is that initial or raw water quality can be poor in quality due to high concentrations of natural minerals and dissolved solids. Raw water can sometimes display a rust color to it as a result of the iron-bearing minerals found within this aquifer. When Clay County is guiding its future development, water resources should be referenced when considering development and the impact of new water supplies in rural areas.

DRAINAGE/WATERSHED Clay County has four (4) watersheds dissecting portions of its landscape. With that said, only one watershed, the Little Sioux watershed, covers approximately 95% of the county’s land acres. The remaining three watersheds, including the Upper Des Moines, Middle Des Moines, and North Raccoon River watersheds cover only a small portion of land in the far southeast corner of the county. The eastern border of the Little Sioux watershed is near the Iowa divide for streams, creeks and rivers. In other words, all waterways and rivers in the Little Sioux watershed flow to the west towards the Missouri River. Conversely, all waterways and rivers located within the remaining three watersheds in the southeast corner of Clay County flow to the east and southeast towards the Mississippi River basin. The largest and most expansive of the three watersheds in Clay County is the Lower Big Sioux Watershed. This watershed spans across four states, including Minnesota, South Dakota, Nebraska and Clay County, Iowa. The Lower Big Sioux watershed follows the course of the Big Sioux River creating the Minnesota/South Dakota border and eventually leading to its discharge point into the Missouri River at Clay City, Iowa.

Watersheds affect every part of life as we know it today. Watersheds are one of natures primary sources of recharging groundwater sources and aquifers referred to in the previous section. This action is necessary so that people can continue to extract water from the ground to provide this basic, yet essential need.

32 Clay County, Iowa 2010 Comprehensive Plan

Little Sioux Watershed Figure 16 - Watershed Boundaries in Clay County

Uppers Des Moines Watershed

Clay County, IA Middle Des Moines Watershed Watersheds North Raccoon Watershed

LAND CONSERVATION PRACTICES Information obtained from a 2004 Natural Resource Conservation Service booklet titled “Conservation Strategies for Growing Communities”, suggests there are several conservation practices that could be simply accommodated during pre-construction, construction, and post construction to make a remarkable difference in the amount of erosion and runoff allowed to infiltrate and pollute local waterways and natural resources. Following is a listing of suggested management practices to support conservation practices.

 Erosion Control Practices – after construction, the planting of fast growing vegetation such as grasses and wild flowers can prevent the runoff and erosion of construction sites. Erosion Control Practices: 1. Compost Blankets 4. Vegetative Establishment 2. Rolled Erosion Control Products 5. Mulching 3. Grading Strategies

 Sediment Control Practices – is often confused with erosion control, but is actually the trapping of detached soil particles that are already moving in the erosion process. Sediment Control Practices: 1. Compost Filter Berms 5. Inlet Protection Devices 2. Compost Socks 6. Rock Check Dams 3. Filter Strips 7. Sediment Control Basins 4. GeoRidge 8. Silt Fences

 Low Impact Development (LID) – is an alternative approach to traditional storm water management that retains and infiltrates rainfall on-site.

33 Clay County, Iowa 2010 Comprehensive Plan

Low Impact Development Practices: 1. Bioretention Cells 5. Permeable Paving Alternatives 2. Bioswales 6. Rain Gardens 3. Infiltration Trenches 7. Soil Quality Restoration 4. Native Landscaping

In the State of Iowa, the Department of Natural Resources (IDNR) does have measures in place to monitor and regulate water discharges through its use of storm water discharge public notices on projects. Furthermore, in accordance with the Clean Water Act, all industrial facilities must complete a National Pollutant Discharge Elimination System (NPDES) permit prior to construction of storm water drainage systems.

CONSERVATION PROGRAMS FOR LANDOWNERS - NRCS The Natural Resources Conservation Service (NRCS) provides: “leadership in a partnership effort to help people conserve, maintain, and improve our natural resources and environment.” The NRCS works through county soil and water conservation districts to protect and improve natural resources across the state. Primary areas of assistance and programs include:

1) Conservation Technical Assistance 2) Conservation Compliance Plans 3) Wetlands 4) Water Quality 5) Resource Conservation and Development (Iowa NRCS has 14 RC&D areas) 6) Soil Surveys 7) Watershed Program 8) CORE 4 (common-sense approach to improving farm profitability while addressing environmental concerns)

In addition to the eight primary fields of technical assistance listed above, the Iowa NRCS is known for its grants and financial assistance programs to assist private landowners implement conservation practices intended to protect the environment, encourage conservation efforts, and educate the public and private sectors on means to sustain, protect, and revive the fragile native landscapes found across the state. NRCS staff serving Clay County is located at local USDA service centers. Numerous other organizations and agencies provide conservation assistance or programs, including local Pheasants Forever Chapters, Ducks Unlimited, the Nature Conservancy, Iowa Natural Heritage Foundation, Iowa State University Extension, and Resource Conservation and Development offices.

Following is a brief summary of the technical assistance programs identified in NRCS’s “Guide to Conservation Programs for Iowa Landowners.” This guide is a reference to financial and technical assistance for conservation on private lands.

. Conservation Technical Assistance: Assists land users to plan and install resource management systems to improve/protect natural resources on their land.

34 Clay County, Iowa 2010 Comprehensive Plan

. Conservation Reserve Program (CRP): Reduces erosion, increase wildlife habitat, and improve water quality through the application of conservation plans.

. Forest Land Enhancement Program (FLEP): Assists landowners to develop and implement a forest management plan.

. Conservation Security Program (CSP): Rewards landowners for past conservation work and provide assistance to help develop conservation plans.

. State Cost-Share: Cost-share & incentives on permanent or management conservation practices to control erosion and reduce sediment.

. State Watershed Protection Practices: Addresses local water quality protection needs, including tree plantings, conversion practices, and erosion control.

. Iowa Water Protection Fund: Water quality improvement practices in watersheds above priority lakes and streams, and to protect ground water.

. Iowa District Initiative: Provides funding to accelerate the implementation of federal conservation programs to protect water quality/fragile land.

. State Loan Program: Provides no interest loans to eligible landowners for the construction of permanent soil conservation practices.

. Local Water Protection Loan Program: Permanent soil conservation practices designed to improve water quality and prevent water runoff from open feedlots.

. Wastewater Assistance Fund: Provides low interest loans to repair or replace on-site septic systems. Landowners may borrow $2,000 to $10,000.

. Conservation Reserve Enhancement Program: Provides incentives to landowners to establish wetlands for water quality improvement in tile-drained regions of Iowa.

. Shelterbelt Program: Provides funding for tree and shrub planting for energy conservation and wildlife habitat.

. Farm Pond Program: Provides quality fishing opportunities for licensed anglers. IDNR provides fish free of charge if state criteria are met.

. General Non-Point Source Program (Low-Interest Loans): Includes restoration of wildlife habitat, stormwater management, storage remediation, and flood prevention areas.

. Livestock Water Quality Facilities Program (Low-Interest Loans): Includes lagoons, manure management, processing equipment, vegetative filters, and manure management plans.

. Wildlife Habitat Incentives Program (WHIP): A voluntary program providing cost share to private and public landowners to establish wildlife habitat. The NRCS works with participants to develop a wildlife habitat management plan. This plan becomes the basis for entering into a 5 to 10 year agreement with landowners to implement the plan.

35 Clay County, Iowa 2010 Comprehensive Plan

Chapter 6. COUNTY POPULATION TRENDS

Clay County population trends have been typically to the trends experienced by many other counties in Northwest Iowa and most other rural counties in Iowa. Being similar in population trends to many other northwest Iowa counties bring with it many shared experiences with other local governments, but also new and challenging issues such as an aging population, migration, income, successes, and challenges that affect the entire population of the area as explored in this next section of this plan. Shifts and growth in population play a critical role in the planning process. Analysis of past trends and current population structure is important in making future population projections. Those projections, along with information about population characteristics such as age and household size, are fundamental in considering the need for future infrastructure improvements and the need for the development of residential, commercial and industrial areas. This section will examine past trends, current structure, future projections, and discuss their impact on the future of Clay County.

PAST POPULATION TRENDS Clay County has developed over the course of the past 100 years from the small agrarian and rural county of the past into the bustling agricultural and “small urban” center it has become today. Clay County, first recorded an official federal census in 1860 with a county population of 12 residents. However, it did not take long for early settlers to find Clay County. By 1900 the county’s population grew to a recorded census of more than 13,400 residents. Over the past 100 years, Clay County has seen periods of growth and decline, however there have not been extreme fluctuations in the overall population. The changes in population in Clay County have been a gradual increase in population until the county reached its high in 1980. Similar to most other rural Iowa counties, Clay County was hit hard by the 1980s national and agricultural economic recession when the State of Iowa lost hundreds of thousands of residents. Clay County has been experiencing a gradual decline in population ever since 1980. These population trends in Clay County are very indicative of larger regional trends occurring throughout northwest Iowa and much of rural Iowa for that matter.

Table 8 - Historic Population Trends, Clay County

YEAR 1900 1910 1920 1930 1940 1950

POPULATION 13,401 12,766 15,660 16,107 17,762 18,103

YEAR 1960 1970 1980 1990 2000 2008 est.

POPULATION 18,504 18,464 19,576 17,585 17,372 16,691

Clay County’s greatest period of growth was experienced between 1910 and 1920 when the county grew by 2,894 residents or 22.7% over 10 years. The greatest period of population decline for Clay County was between 1980 and 1990 when the population slipped by 1,991 residents or 10.2 percent. According to 2008 Census estimates, recently population trends have continued to

36 Clay County, Iowa 2010 Comprehensive Plan decline slightly but has remained stable for the most part. The next official census will be taken in 2010 and published in 2011.

Figure 17 - Historic Population Trends 1900-2008

20,000 19,576 18,464 18,103 18,504 17,765 17,585 18,000 17,372 16,691 16,107 15,660 16,000

13,401 14,000 12,776

12,000

10,000 1900 1910 1920 1930 1940 1950 1960 1970 1980 1990 2000 2008 est.

RURAL VERSUS URBAN Roughly 78.9 percent of Clay County’s current population resides in one of the county’s ten (10) incorporated cities, which range in size from Rossie (population 56) to Spencer (population 11,317). Clay County’s urban population actually decreased after 1980, but has basically leveled out as of 1990 as a percentage of the entire county population. Between 1990 and 2007 the county’s rural population declined 2.5 percent or 638 residents. The trend of urban verses rural population seems to be maintaining over the last 20 years.

Figure 18 - Urban vs. Rural Population Trends 1900-2007 Year Urban Rural 1980 14,573 (82.9%) 3,012 (17.1%) Residence 1990 13,433 (76.4%) 4,152 (23.6%) Clay County 2000 13,618 (78.4%) 3,754 (21.6%) 2007 13,175 (78.9%) 3,514 (21.1%) 100% 90% 80% 70% 60% 50% 40% 30% 20% 10% 0% 1940 1950 1960 1970 1980 1990 2000 Urban Rural Nonfarm Farm

SETA Source: US Bureau of the Census Office of Social and Economic Trend Analysis Iowa State University

37 Clay County, Iowa 2010 Comprehensive Plan

Individually, population trends among Clay County’s cities have varied widely over the past 20 years. It seems as if the urban vs. rural shift in population has affected the population growth between the cities in Clay County similar to the shifts from the unincorporated population to the cities comparison. Of the ten (10) cities in Clay County, there is only one community with a population of greater than 1,000 residents.

Table 9 - Percentage of Population Change of Cities in Clay County Change % Change 2008 est. 2000 1990 1980 1980-2008 1980-2008 Clay 16,691 17,372 17,585 19,576 -2,885 -14.7% Dickens 187 203 214 289 -102 -35.3% Everly 636 647 706 796 -160 -20.1% Fostoria 242 230 205 261 -19 -7.3% Gillett Grove 46 55 67 93 -47 -50.5% Greenville 85 93 84 122 -37 -30.3% Peterson 342 372 390 470 -128 -27.2% Rossie 56 58 68 72 -16 -22.2% Royal 424 479 466 522 -98 -18.8% Spencer 10,986 11,317 11,066 11,726 -740 -6.3% Webb 151 165 167 222 -71 -32.0% Rural 3,536 3,754 4,152 3,012 524 17.4%

TOWNSHIPS The following table includes a sample of demographic statistics relative to the rural townships in Clay County. Most data sources do not report demographic data for townships, rather just county or larger city statistics. Population statistics and other data are often times difficult to gather at the township level. The source used to document this information is the city-data.com web site. It is expressed that this website is intended for informational use only and does not rely upon the accuracy or timeliness of the data presented on the website. The data has been presented from multiple governmental and commercial sources.

Table 10 - Land Mass and Rural Population of Clay County Townships, 2000 Rural Township Name Land Mass Water Mass Population Cities Clay Township - 36.35 sq.mi. 0.0 sq.mi. 696 Royal Douglas Township - 35.67 sq.mi. 0.0 sq.mi. 212 None Freeman Township - 35.09 sq.mi. 0.6 sq.mi. 444 Dickens Garfield Township - 35.96 sq.mi. 0.0 sq.mi. 311 Webb Gillett Grove Township - 36.10 sq.mi. 0.0 sq.mi. 385 Gillett Grove & Greenville Herdlan Township - 35.56 sq.mi. 0.0 sq.mi. 210 None Lake Township - 33.36 sq.mi. 2.6 sq.mi. 240 None

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Lincoln Township - 36.26 sq.mi. 0.0 sq.mi 260 Rossie Logan Township - 36.30 sq.mi. 0.2 sq.mi. 166 None Lone Tree Township - 35.34 sq.mi. 0.0 sq.mi. 860 Everly Meadow Township - 34.80 sq.mi. 0.0 sq.mi. 339 None Peterson Township - 35.75 sq.mi. 0.0 sq.mi. 555 Peterson Riverton Township - 30.97 sq.mi. 0.0 sq.mi. 321 None Sioux Township - 30.42 sq.mi. 0.0 sq.mi. 395 None Summit Township - 35.30 sq.mi. 0.0 sq.mi. 452 Fostoria Waterford Township - 35.55 sq.mi. 0.0 sq.mi. 209 None

Note: The term “rural population” may include rural residents and residents of small cities located within each township, based upon the definition of rural population by the data source. The term “rural population” does not include any city over 2,500 in population.

Figure 19 - Township map of Clay County

Source: http://www.co.clay.ia.us/offices/gis/forms/TOWNSHIPS.pdf

39 Clay County, Iowa 2010 Comprehensive Plan

CURRENT POPULATION STRUCTURE As of the 2000 Census, Clay County has a total population of 17,372 persons, of which 3,754 are rural residents. From 1990 to 2000, the rural population of Clay County decreased from 4,152 to 3,754, a loss of 398 residents or a 9.4 percent decline. This trend alone is not unique in that only a few counties in the entire state experienced an increase in the rural population. Every county across northwest Iowa experienced a loss of rural population, except for Dickinson County which grew due to the tourism nature of the county. This trend of a declining rural population is continuing throughout the current decade as well. Between 2000 and 2007, population estimates released by the U.S. Census Bureau indicate a projected rural population of 3,514 or a decline of 6.4 percent since 2000. The continued decline or shifting of the rural population in Clay County will become a key factor for future community and economic development efforts.

With the rural population of Clay County may be declining or “shifting” to urban communities, the overall population of Clay County is also continuing to shrink. As seen in the map below, of the 9 counties represented in this northwest Iowa region, there was only one county that experience growth from 2000 to 2008, Dickinson County. Clay County was the second lowest percentage of population loss, only behind Buena Vista County. The remaining six counties in the region identified below all showed a greater population loss than Clay County did from 2000- 2008. This trend goes to support the overall continuing “rural to urban” shift occurring within the state of Iowa. Minnesota Figure 20 - 2000-2008 comparison Osceola Co. Dickinson Co. Emmet Co. population of neighboring 2000 – 7,003 2000 – 16,424 2000 – 11,027 counties 2008 – 6,444 2008 – 16,775 2008 – 10,457 -8.0% +2.1% - 5.2%

O’Brien Co. Clay Co. Palo Alto Co. 2000 – 15,102 2000 – 17,372 2000 – 10,147 2008 – 13,952 2008 – 16,691 2008 – 9,345 -7.6% -7.9% -3.9%

Cherokee Co. Buena Vista Co. Pocahontas Co. 2000 – 13,035 2000 – 20,411 2000 – 8,662 2008 – 11,552 2008 – 19,702 2008 – 7,560 -11.4% -3.5% -12.7%

The median age of 39.4 years for Clay County residents is nearly three (3) years older than that of the State of Iowa which is at 36.6. Median age in Clay County has consistent, on average, with that of other counties in northwest Iowa. This statistic indicates that Clay County does having an aging population base and special considerations may need to be taken into account regarding the

40 Clay County, Iowa 2010 Comprehensive Plan services and provisions for county services for the senior population of Clay County. Eighteen percent (18%) of the county's 2000 population or 3,124 residents meet the U.S. Census’ definition of senior or elderly population, which includes persons aged 65 and older. On a positive note, the 2000 Census reports that a larger than average 24.7 percent of the county’s population is considered the youth of Clay County, or those persons under the age of 18. As of 2000, there were 4,289 youth living in Clay County. Both of these age demographic groups show clear but distinctly different needs for special consideration when providing future county services and planning future land use growth decisions.

Of the total Clay County population, 48.3 percent, or 8,385 are male, while 51.7 percent or the remaining 8,987 residents are female. This proportion of males to females is typical of the area due to the longer life expectancy of females. As seen in the chart below though, the balance between males and females appears to be mostly even, except for over the age of 70 when the presence of females appears to be much larger in percentage than males. This trend is also repeated in the statewide population distribution which would go to support the statistics of women having a longer life expectancy. The following charts were provided by the “Take Charge” report, a part of the Regional Economics & Community Analysis (RECAP) Program through Iowa State University. The RECAP Program provides several areas of socio-economic statistical data for the cities and counties in Iowa, including population trends, housing profiles, retail sales and analysis reports, take charge reports, school district profiles and a multitude of other useful demographic and economic data.

Figure 21- 2000 Clay County Population Distribution 2000 Iowa Population Distribution

Source: Regional Economics & Community Analysis Program (RECAP) www.recap.iastate.edu Iowa State University, University Extension

41 Clay County, Iowa 2010 Comprehensive Plan

Table 11 - Age Distribution of Population, 2000 (Clay County and Iowa)

Age Clay County Percent State of Iowa Percent Cohort 0-9 2,222 12.8% 391,016 13.4% 10-19 2,482 14.2% 436,967 14.9% 20-34 2,902 16.7% 566,723 19.4% 35-44 2,737 15.8% 445,199 15.2% 45-54 2,395 13.8% 392,794 13.4% 55-64 1,510 8.7% 257,412 8.8% 65-74 1,476 8.5% 211,935 7.2% 75-84 1,166 6.7% 159,160 5.4% 85+ 482 2.8% 65,118 2.3% Total 17,372 100.0% 2,926,324 100.0%

Source: U.S. Census Bureau, 2000 Census

Figure 22 - Age Distribution comparison, Clay County, Iowa, United States, 2000

20.0% United States State of Iowa Clay County 15.0%

10.0%

5.0%

0.0% 0-9 10-19 20-34 35-44 45-54 55-64 65-74 75-84 85+

The 2000 Census indicated 333 or 1.9% of the county's residents were members of a minority race. More than 98 percent of the county's population were identified as Caucasian, while 17 residents were American Indian, 30 individuals are Black or African American and 142 additional residents are identified as Asian. According to statistics, there are 95 persons that declared “two or more races”. Of all races, 196 persons in Clay County declared they were of Hispanic or Latino decent constituting 1.1% of the total population. These numbers of minorities are important when determining the services that are to be provided. As these segments of the population continue to grow, the county's policies and goals with respect to personnel and service provisions may need to be evaluated and adjusted.

42 Clay County, Iowa 2010 Comprehensive Plan

POPULATION CHANGE – NATURAL CHANGE AND MIGRATION Analyzing individual components of population change identifies the internal and external forces affecting local population changes occurring in Clay County. Now that the statistics show Clay County’s population has historically declined over the past 30 years, what impacts are causing this population change in Clay County. Population change results from two primary reasons; natural change and migration. Natural population change describes the effects from births and deaths occurring within the county, whereas net migration describes the effects of people moving into and out of the county. Total population change occurs from the results of both natural change and net migration.

The following graphics were obtained from the RECAP Take Charge report prepared for Clay County prepared by Iowa State University. Within this report, the components of population change are addressed which compare annualized rates of population change by component for the county, state, and peer group. The peer group used in the following tables includes the combined averages of 45 other counties in Iowa of similar rural and agricultural composition. The first graphic illustrates natural change (births and deaths). The second graphic illustrates net migration (both domestic and international migration).

Figure 23 - Natural Change and Migration Patterns of Clay County, Peer Group and Iowa, 2000-2007

Source: Regional Economics & Community Analysis Program (RECAP) www.recap.iastate.edu Iowa State University, University Extension

As seen on the adjoining figures and the table on the following page, Clay County has experienced a positive natural change of nearly 0.25% from 2000-2007. Although, this percentage increase is very small, it means that Clay County is not loosing any population from natural change. In fact, over the past eight year, there were more people born in Clay County than died in the county.

43 Clay County, Iowa 2010 Comprehensive Plan

Since natural change did not have a negative effect on the county’s population since 2000, it must be attributed to migration. Both the figure on the previous page and the following table show Clay County lost a significant amount of its total population change to domestic out- migration. This means people living within Clay County moved out of the county. Actually, the numbers show that international in-migration accounted for positive growth in Clay County, but the overall net migration was significantly lower based on the large percentage of domestic out- migration. Since statistics show Clay County’s population loss is not attributed to natural change, but rather an out-migration of current residents, the issue now shifts to how can Clay County leaders and government officials stop the outflow of current residents and stop the loss of domestic migration severely impacting Clay County’s ability to grow.

Table 12 - Natural Change and Migration Patterns of Clay County, Peer Group and Iowa, 2000-2007

Annualized Annualized State Annualized Peer Clay County County Rate Rate Group Rate 2000 Population 17,372 0.0% 0.0% 0.0% Births 1,487 1.2% 1.3% 1.2%

Deaths 1,287 -1.0% -0.9% -1.1%

Natural Change + 200 0.2% 0.4% 0.1% International 96 0.1% 0.2% 0.1%

Domestic -911 -0.7% -0.2% -0.6%

Total Migration -815 -0.7% -0.1% -0.5% Residual -68 -0.1% -0.0% -0.1%

Total Change -683 -0.5% 0.3% -0.5%

Source: Regional Economics & Community Analysis Program (RECAP) www.recap.iastate.edu Iowa State University, University Extension

FUTURE POPULATION PROJECTIONS Accurate estimates of population for a county are important factors in determining future needs for services, housing, and infrastructure. Analysis of population projections can provide some insight into the type and quantity of future development and allows local officials to set land use policies to guide expected development. Only a few reputable agencies, including government agencies and private consulting firms have developed reasonably acceptable population and demographic projections at the county level. For purposes of this plan, the population projections come from “Iowa Trends” and report from the Iowa Workforce Development News and Trends. The source to support the Iowa Workforce Development population projections is derived from the U.S. Census Bureau, Statistical Information Branch.

The Iowa Workforce Development population projections coincide with the U.S. Census estimates through 2008, which depict a continuing trend of a declining population base in Clay County. The current population trends in Clay County are expected to continue through 2010,

44 Clay County, Iowa 2010 Comprehensive Plan

while statistics show the county’s population moderating by 2020 and even growing slightly by 2030. If Clay County officials can find a way to minimize the out-migration of domestic or current residents, Clay County’s population will likely grow in the future, but Clay County has to stop exporting its greatest resource; its residents.

Table 13 - Projected Population Trends, 2010-2030 CLAY COUNTY YEAR POPULATION 1950 18,103 1960 18,504 1970 18,464 1980 19,576 1990 17,585 2000 17,372 2010 16,906 2020 16,907 2030 17,028

Source: Iowa Trend, Iowa Workforce Development News and Trends, Data Revised 2004

Figure 24 - Projected Poluation Growth 2010-2030 20,000 19,500 Census Population 19,000 18,500 Population n Projections o

i 18,000 t a l

u 17,500 p o 17,000 P 16,500 16,000 15,500 15,000 1950 1960 1970 1980 1990 2000 2010 2020 2030 When considering population projections, potential socioeconomic variables are not factored in. The projections are based strictly on statistics such as past population trends, migration patterns and current tax data. The above listed population projections do not take economic and sociological forces into consideration. These variables alone are quite difficult to project or forecast and then to apply them to population projections is even more difficult. A number of assumptions would have to be made and the margin of error at each level of application increases. Factors that may affect population estimates include business expansions or closures, new housing developments, or a rise or decrease in the cost of living. In some cases a lack of services, housing or lack of employment will drive prospective homeowners to other areas where housing and employment is more readily available.

45 Clay County, Iowa 2010 Comprehensive Plan

Chapter 7. HOUSING ANALYSIS

Clay County has been subject to varying housing trends over the past decade. By the end of the 1990s decade and the early part of the 2000s, the economy was robust and the housing market in Clay County, both the rural and within the communities was strong. New acreages were being built in rural Clay County, rural housing subdivisions were being platted and new housing units being constructed. The first half of the 2000 decade showed promising signs for an strong period of new housing and construction in Clay County. However, with the onset of a downturn in the economy, the local economy (including new housing starts) has followed regional and national trends since 2008. When the economic recession grew in 2009, many developers, contractors, builders, homeowners and even farmers were experiencing the slowdown in the economy and this was also reflected in the housing market.

HOUSING VALUATIONS Clay County's housing stock is comprised of a variety of housing styles and values. Current census figures show 4,061 specified owner-occupied housing units countywide. In order to understand the current housing stock; it is useful to identify changes in the housing market, values and vacancy. According to 2000 census data, the largest category of housing values was in the $50,000 to $99,999 range, accounting for nearly 50% of the housing stock.

Table 14 - Valuations of 4,061 Specified Owner-Occupied Housing Units – Clay County, 2000 Value in $50,000- $100,000 $150,000 $200,000 $300,000 $500,000 $1 million Median <$50,000 2000 $99,999 $149,999 $199,999 $299,999 $499,999 $999,999 or more value ($) # Units 1,034 1,995 592 230 166 40 4 0 $74,400 % Units 25.5% 49.1% 14.6% 5.7% 4.1% 1.0% 0.1% 0.0%

Source: 2000 U.S. Census Data

Table 15 - Valuations of 665,442 Specified Owner-Occupied Housing Units – Iowa, 2000 Value in $50,000- $100,000 $150,000 $200,000 $300,000 $500,000 $1 million Median <$50,000 2000 $99,999 $149,999 $199,999 $299,999 $499,999 $999,999 or more value ($) # Units 135,833 301,591 134,212 53,228 29,483 8,938 1,743 414 $82,500 % Units 20.4% 45.3% 20.2% 8.0% 4.4% 1.3% 0.3% 0.1%

Source: 2000 U.S. Census Data

According to the statistics presented in the above tables and the figure on the following page, Clay County appears to have a higher percentage of housing units below $100,000 in comparison to the State of Iowa. Also, Clay County has a lower percentage of housing units in escess of $100,000 when compared to Iowa. These figures are nearly 10 years old, and it is expected that the new 2010 Census figures will show a significant increase in Clay County’s housing values.

46 Clay County, Iowa 2010 Comprehensive Plan

Figure 25 - Housing Valuations of Owner-Occupied Housing Units, 2000 50.00%

45.00% 40.00% Clay County 35.00%

30.00% Iowa

25.00%

20.00%

15.00%

10.00%

5.00%

0.00% 0k-50,000 50k-100K 100k-150K 150k-200K 200k-300k 300k-500k 500k-1M 1 Million +

Another method of defining the value of housing is to take a comparative look at the median housing values of other counties in the region. The following chart shows a comparison of median housing values for the eight (8) counties that abut Clay County’s borders. Clay County has a median housing value of $74,400. This figure is 9.8% less than the state’s overall median housing value of $82,500. Although Clay County’s median housing value is less than Iowa’s average median housing value, in comparison to the surrounding eight counties, Clay County, ranks second in housing value only behind Dickinson County. Dickinson County’s high housing value can be attributed to the large number of high valued lakeshore properties within the Iowa Great Lakes region. Aside from Dickinson County, Clay County’s housing valuation is roughly 25%-30% high than the remaining counties. In fact, Clay County’s housing valuation is an astonishing 45.7% higher than the housing valuation Figure 26 - Comparative Median Housing Values, 2000 of neighboring Pocahontas Iow a $82,500 County. These statistics Clay County $74,400 just prove that sometimes $96,800 comparisons with the State Dickinson County Emmet County $53,000 of Iowa don’t tell reveal Median $53,500 the entire picture, and Palo Alto County Housing sometimes you need to Pocahontas County $40,400 Value take a look Clay County’s Buena Vista County $64,900 presence within a smaller Cherokee County $57,300 region of northwest Iowa, which is more similar to O'Brien County $58,300 Clay County. Osceola County $53,400 $0 $20,000 $40,000 $60,000 $80,000 $100,000

HOUSING ASSISTANCE PROGRAMS It is expected that the largest number of new housing units constructed will continue to be in the higher price ranges. This trend is more indicative of new housing starts within the larger cities of

47 Clay County, Iowa 2010 Comprehensive Plan

Clay County. Typically, lower valued housing units can be found within the smaller communities or rural unincorporated areas of Clay County. Higher priced housing may not be as easily accessible for people who are first-time homebuyers or one-income families. Programs for first- time homebuyer assistance, down-payment assistance, or moderately priced new housing subdivisions might benefit prospective new homebuyers in Clay County. The following housing financial assistance address those state and federal programs available to improve the condition, quality, and ownership of single family housing in Clay County. Assisting housing needs may be attained through the use of a wide range of state and federal housing programs.

. Tax Increment Financing (local government) . Tab Abatement (local government) . Homeless Assistance Grants Program (IDED) . Iowa Housing Fund (IDED, HUD) Funding agencies (KEY) . Affordable Housing Tax Credits (IFA) Local Govt. - Clay County or cities . Housing Assistance Fund (IFA) IDED - Iowa Dept. of Economic Development . Affordable Housing Program (FHLB) IFA - Iowa Finance Authority . Community Investment Loan Program (FHLB) USDA - United States Department of . 3/2 Option (Fannie Mae) Agriculture . Fannie 97 (Fannie Mae) UDMO - Upper Des Moines Opportunity . Start-up Mortgage (Fannie Mae) HUD - United States Department of . Community Seconds (Fannie Mae) Housing and Urban Development . Lease-Purchase Loans (Fannie Mae) FHLB - Federal Home Loan Bank . HomeStyle Mortgage (Fannie Mae) (Des Moines, IA or Sioux Falls, SD) . Homeownership Loans (USDA) Fannie Mae - Fannie Mae Iowa . First Time Homebuyer Program (USDA) (Des Moines location) . Rural Rental Housing Loans (USDA) . Housing Preservation Grant Program (USDA) . Weatherization Program (UDMO) . Clay County Local Housing Trust Fund

CLAY COUNTY LOCAL HOUSING TRUST FUND As stated in the 2009 Clay County Needs Assessment report, the Clay County Local Housing Trust Fund (CCLHTF) was established in 2008 to help qualified residents make repairs to the home. According to the CCLHTF’s website, http://claycountyhousing.org/, the Housing Trust Fund’s mission is to ensure that residents of Clay County have access to well maintained, safe and affordable housing in both the rural and urban areas of Clay County. The CCLHTF received its first award from the Iowa Finance Authority in December 2008 in the amount of $94,181 to assist income qualified residents with needed housing repairs. Typically, the Housing Trust Fund will make awards to individual homeowners for

48 Clay County, Iowa 2010 Comprehensive Plan

projects such as furnace, windows, roof, insulation, or other similar projects to ensure the safety and comfort of Clay County residents. The CCLHTF is overseen by a nine (9) member board that applies for continued funding, reviews applications and makes decisions on assistance to homeowners and reviews means and programs to distribute the housing trust funds. Applications for assistance may be directly downloaded from the CCLHTF website and additional information may be obtained by e-mailing [email protected] or contacting the CCLHTF at P.O. Box 500, Spencer, Iowa 51301.

BUILDING PERMITS According to records kept by the Manufacturing, Mining and Construction Division of the U.S. Census Bureau and prepared by the State Library of Iowa, have been a combined 374 building permits issued for the construction of new residential housing units from 2000 to 2008. During this nine year time period, the total estimated valuation of new housing units constructed in Clay County accounts for more than $47.8 million. The following statistics are for new construction of residential housing units only and does not include the building permits or valuations for the construction of new commercial/industrial or agricultural related buildings and related structures.

Table 16 - 2000 to 2008 Residential Housing Units Building Permits Year: 2000 2001 2002 2003 2004 2005 2006 2007 2008 Building Permits: 45 70 45 36 69 33 33 19 24 Value: $4.48M $6.67M $4.56M $4.94M $8.70M $4.93M $4.93M $3.47M $5.09M

Figure 27 - Building permits in Clay County, 2000-2008

100 90 Building Permits 80 Valuation (000,000) 70 60 50 40 30 20 10 0 2000 2001 2002 2003 2004 2005 2006 2007 2008 Source: U.S. Bureau of the Census, Manufacturing, Mining and Construction Division; Building Permits Prepared By: State Library of Iowa, State Data Center Program http://www.iowadatacenter.org

HOUSING OCCUPANCY The following table indicates occupancy and vacancy rates according to 2000 census data. As the number of total housing units has increased so has the vacancy rate also increased for single- family households. The vacancy rate for single family housing is at 7.3% according to the most recent census data. This percentage varies greatly when looking at the difference between the

49 Clay County, Iowa 2010 Comprehensive Plan vacancies of owner occupied housing units and rental units. The owner vacancy rate is only 1.6 percent, which indicates a very tight housing market and shows signs of housing demand within the county. On the other hand, the rental vacancy rate in Clay County is 6.2 percent, which is slightly higher than what should be expected for vacant units. A vacancy rate of near 5 percent is considered healthy for both buyers and sellers. The table below also indicates a number of seasonal housing units in Clay County. The number of seasonal or recreational vacant housing units appears to have little effect on the overall housing need in Clay County.

Table 17 - Vacancy Status – 2000 VACANT VACANT TOTAL OCC. TOTAL Owner Renter HOUSING SEASONAL/ HOUSING HOUSING VACANT Vacancy Vacancy UNITS RECREATION UNITS UNITS UNITS Rate Rate USE # % # % Clay 7,828 7,259 569 495 6.3% 74 0.9% 1.6% 6.2% County 100% 92.7% 7.3%

Source: U.S. Bureau of Census, 2000

HOUSING UNIT PROJECTIONS The average household size in Clay County during 2000 was 2.35 persons per household. This figure is projected to continue to decline over the next 30 years. The fact that household size is decreasing in Clay County is a trend taking place throughout the region, state, and nation. Using average household size and population projections one can predict future housing needs for a given area. Between 1990 and 2000, Clay County's total housing units increased from 7,659 to 7,828 (+2.2%). Since the overall population in Clay County decreased slightly during this time period, the gains in housing units can most likely be attributed to factors such as higher divorce rates, the average age of married persons increasing and longer life expectancies. Additionally, the economic boom of the late 1990s decade afforded many people the opportunity to build new houses with declining interest rates and a generous lending market, which may also have contributed to the increase in housing units by 2000.

Table 18 - Projected Housing Units needed in 2010, 2020 and 2030

Year 2010 2020 2030 Projected Population 16,906 16,907 17,028 Projected Household Size 2.24 pph 2.15 pph 2.11 pph Units Needed For Population Increase 7,548 7,864 8,071 Maintain a 5% Vacancy Rate 378 393 404 Average Demolition/Removal of 1 House per year 10 20 30 Total Housing Units Needed 7,936 8,277 8,505 Current Housing units in 2000 7,828 7,828 7,828 Increase From 2000 108 449 (+341) 677 (+228)

50 Clay County, Iowa 2010 Comprehensive Plan

Chapter 8. PARKS, RECREATION & NATURAL RESOURCES

Clay County offers an abundance of county parks and recreational areas. The county’s most notable natural resources are those natural prairie lakes carved by the once glacial movement of the Des Moines Lobe along the county’s eastern border. Additionally, one of Clay County’s most utilized park and recreation uses is Scharnberg Park which is multi-use park, campground, pond and recreational cabins. There are numerous public wildlife management areas and other county parks which cater to the desires of sportsmen, hikers, bird-watchers and nature enthusiasts alike.

According to the Clay County Conservation Office, did you know?  Clay County is home to Bald Eagles! Along the Little Sioux River from Spencer to Gillett Grove is haven for wintering grounds and migration routes of the Bald Eagle.  Clay County attracts many non resident deer hunters  Clay County has in excess of 15 miles of trails in managed areas  The largest northern pike caught in Iowa in the past 15 years was caught at the Schmerse Wildlife area  Clay County boasts many native prairie plants  There are 13 conservation areas with facilities for camping, canoeing, hunting and more

Recreational and natural resources provide many benefits and amenities to the individual, family, and the county’s overall quality of life. The Clay County Conservation Board works hard to maintain a viable parks and recreation system, and there are many active and passive recreational activities for residents to enjoy. However, Clay County officials and residents alike must realize that these recreational “amenities” cannot remain static. As the composition of the county changes over time, so must the parks systems change to meet growing or changing demands.

COUNTY PARKS, RECREATION & WILDLIFE AREAS An overview of Clay County’s parks and recreation facilities will reveal the true natural beauty and amenities that few in Clay County truly know exist. For example, Clay County residents easily have access to 13 county parks, 1 state park, 3 log cabins for rent at Scharnberg Park, numerous outdoor shelters throughout the county, a log cabin to rent at Oneota Park, and numerous natural areas including native prairie, woodland, river, and wetlands. Additionally, few in the county likely realize there are 30.3 miles of the Inkpaduta Canoe Trail on the Little Sioux River within Clay County. A trip down the Little Sioux River by canoe or boat can be one of the most enjoyable, educational and serene natural experiences. Following is a listing of each of the 13 county parks and recreation areas.

Dickens Pit (near Dickens) This 5 acre lake within a 40 acre recreation and wildlife area is situated approximately 1 mile southeast of Dickens and approximately ½ mile south of Highway 18. An old pit used to mine gravel and sand, the area now boasts a pond a small lake stocked for fishing, along with acres of upland wildlife habitat which is available for sportsman to hunt or nature enthusiasts to enjoy.

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Schmerse Wildlife Area (near Fostoria) This 46 acre park and wildlife area is located 3 miles east of Fostoria along County Highway B- 14. The park includes a 7 acres lake which is suited for canoeing and fishing. The lake is stocked with many sport species of fish. Also included at Schmerse wildlife area are large tracts of upland habitat suitable for hunting as well as trails for hikers to enjoy.

Bertram Reservation (near Peterson) Bertram is a 240 acre natural prairie reservation which boasts many activities for the outdoor enthusiast such as marked equestrian trails, forest hunting (mushrooms or deer antlers), trail hiking, winter sports (cross country skiing) and upland hunting. The reservation is located approximately 1½ miles east of Peterson just north of Highway 10.

Riverside Little Sioux Access - Highway 10 (near Peterson) Located ½ mile west of the City of Peterson, the 3 acre Riverside Access provides opportunities for canoeing, boaters to launch their craft in the Little Sioux River. There is also an area for picnicking and pit toilets.

Vera and Gilbert James Wildlife Area (near Peterson) This small 13 acre recreation area contains a 2 acre pond suitable for canoeing or fishing. The remaining land within the James Wildlife Area is primarily upland habitat for sportsman and hunters. The area is located 8 miles east of Peterson along Highway 10.

Bob Howe/Thunder Bridge Wildlife Refuge (near Spencer) This recreation and wildlife area is situated along the western edge of Spencer and is 34 acres in size. This native and wild area allows for access to the Little Sioux River and is a great place to enjoy canoeing, boating or stream fishing.

Oneota Little Sioux Access (near Spencer) At 154 acres, the Oneota Park is the largest County Park (excluding wildlife areas or reservations) in Clay County. Located partially within the City of Spencer and adjacent to the southeastern border of Spencer, this park is heavily utilized for equestrian riding with its many miles of groomed trails. Also available within Oneota Park is a beautifully updated shelter house which was remodeled in a lodge look. Other recreational activities occurring throughout Oneota include river fishing, canoeing the Little Sioux River, camping, cross country skiing, picnicking, and hiking.

Stub Johnson Equestrian Area (near Spencer) Another tract of recreational land dedicated to the equestrian interests, this property is located approximately ½ mile west of Highway 71 in south Spencer. This equestrian area consists of 80 acres of primarily native prairie habitat with marked equestrian trails that borders the Ocheyedan River.

52 Clay County, Iowa 2010 Comprehensive Plan

Figure 28 - Clay County Conservation Commission - Parks and Recreation Map

1. Dickens Pit 8. Stouffer Memorial Wildlife Refuge 2. Schmerse Wildlife Area 9. Stub Johnson Equestrian Area 3. Bertram Reservation 10. Grandview Park (Lost Island) 4. Riverside Little Sioux Access 11. Kindlespire Little Sioux Access 5. Vera & Gilbert James Wildlife Area 12. Burr Wildlife Area 6. Bob Howe/Thunder Bridge Refuge 13. Scharnberg Park 7. Oneota Little Sioux Access 14. Wanata Park

Source: Outdoor Adventure Guide, Iowa Association of County Conservation Board’s, 2002 Clay County Conservation Website: http://co.clay.ia.us/offices/conservation/index.htm

53 Clay County, Iowa 2010 Comprehensive Plan

Stouffer Memorial Wildlife Refuge (near Spencer) This 21 acre tract of timber and river bottom habitat is located 2 miles east of Spencer along Highway 18. The area provides opportunities for visitors to partake in stream fishing, boating and a canoe access to the Little Sioux River.

Grandview Park (eastern Clay County) At 1 acre in size, Grandview Park is the county’s smallest park. However, being located along the western shore of Lost Island Lake this County Park is heavily utilized during the summer recreational months. The park maintains picnicking and restroom facilities and swimming, canoeing, boating and fishing are commonly occurring activities at Grandview Park.

Kindlespire Little Sioux Access (near Webb) Located 5 miles west of the City of Webb and ¼ mile south of County Highway B-63, the Kindlespire Access is a vast amount of upland, river bottom and timber land situated along the Little Sioux River in southern Clay County. At 222 acres, the Kindlespire Access offers the outdoor and sportsman enthusiasts many opportunities for hunting, hiking, canoe access, fishing, forest hunting, camping and picnicking.

Burr Wildlife Area (near Webb) Located approximately 5 miles west of the City of Webb and ½ mile south of the Kindlespire Access, the Burr Area is primarily upland habitat and timber land utilized by hunters and outdoor enthusiasts. The Burr Area is 150 acres and includes equestrian trails, forest hunting, hiking, and upland hunting. A small portion of the southeast corner of the Burr Area is located adjacent to the Little Sioux River.

Wanata Park (near Peterson) Wanata Park can be found just south of the City of Peterson adjacent to the southern border of Clay County. The Little Sioux River corridor can be found meandering throughout this area. There are limited facilities in Wanata, but this 160 acre park still offers shelter areas for picnics, recreational activities, hiking, bird watching, fishing and many other outdoor activities. The county park is primarily comprised of mature river bottomland timber associated with the Little Sioux River valley. The park provides habitat and refuge for many types of both woodland wildlife and bird species, many of which follow the Little Sioux River corridor during migration routes. Often times, the bald eagle has been spotted both within and near Wanata Park.

Photo of Scharnberg Park Cabins Scharnberg Park (Near Everly) Situated approximately 1 mile east of Everly, 9 miles west of Spencer and ½ mile north of County Highway B-24, Scharnberg Park is probably one of Clay County’s most utilized park and recreation areas in the county. At 45 acres, this park includes a 15 acre pond, 63 individual camping sites with full utilities, fully furnished cabins,

54 Clay County, Iowa 2010 Comprehensive Plan

Figure 29 - Map of Scharnberg Park near Everly handicapped accessible fishing piers, modern shower house and facilities, hiking trails, a swimming beach and other family friendly amenities. Scharnberg Park’s modern and expanded campground includes access to rural water, up to 60 amp breakers, cable television and wireless internet. Camping costs $18 per night and $23 per night with electrical and sewer.

All camping sites also include room for tent camping. A concessions area and firewood is also available for sale within the park. The new modern cabins available for rent

Map and photos courtesy of: http://www.scharnbergpark.com/ range from 360 square feet up to 1,056 square feet and can accommodate between 4 to 8 guests. The cabins come fully furnished and also offer covered porches, modern restroom facilities, cable TV, heating and air conditioning, kitchenette with appliances, picnic table and fire ring by each cabin and nearby parking. There is something for everyone to enjoy at Scharnberg Park!

STATE PARKS Although Clay County is not home to an Iowa State Park, its proximity to many other state parks is very evident. Within 50-60 miles of Clay County lies 14 of Iowa’s 71 state parks that offer residents of Clay County an opportunity to experience some of the most unique and pristine natural landscapes in the State of Iowa. Below is a listing of those state parks close to Clay County.  Ambrose A. Call State Park – Kossuth County (near the City of Algona)  Fort Defiance State Park – Emmet County (near the City of Estherville)  Okmanpedan State Park – Emmet County (near the City of Armstrong)  Elinor Bedell State Park – Dickinson County (near the City of Spirit Lake)  Mine-Waukan State Park – Dickinson County (near the Minnesota State Line)  Pikes Point State Park – Dickinson County (near the City of Okoboji)  Claire Wilson State Park – Dickinson County (near the City of Arnolds Park  Emerson Bay State Park – Dickinson County (in the City of West Okoboji)  Lower Gar Access State Park – Dickinson County (in the City of Arnolds Park)  Marble Beach State Park – Dickinson County (in the City of Orleans)  Templar Park State Park – Dickinson County (in the City of Orleans)  Trappers Bay State Park – Dickinson County (in the City of Lake Park)  Gull Point State Park – Dickinson County (in the City of Wahpeton)  Twin Lakes State Park – Calhoun County (near the City of Manson)

CLAY COUNTY CONSERVATION BOARD The Clay County Conservation Board is headquartered at the Conservation Office in Oneota Park in Spencer. 2010 Clay County Conservation Board members include:

55 Clay County, Iowa 2010 Comprehensive Plan

Lee Schoenwe, Spencer, Chairperson John Sheridan, Greenville, Vice Chairperson Michelle Lachner, Spencer, Secretary Ron Creswell, Spencer Darrell Frerichs, Lost Island Lake

The Clay County Conservation Board implements the natural resource and recreation policies of the county through enhancing and protecting the county’s natural resources, providing outdoor recreation, environmental education, and roadside vegetation management.

PARKS AND RECREATION RESPONSIBILITIES Clay County’s parks, recreation and conservation responsibilities include the Conservation Board’s maintenance and oversight of the 13 county parks and recreation areas, in addition to support for sponsored County Conservation programs. Recreation needs and priorities of the county are considered and funded by the Board of Supervisors, and other private or public funding sources. The County Conservation Board staff assists daily operations. In addition to publicly provided parks or open space through Clay County, the private sector also plays an increasing role in providing future recreational amenities for the county’s residents.

The Iowa Department of Natural Resources is the state agency which is primarily responsible for provisions of recreational funding programs and creation and maintenance of existing facilities at the statewide level. The Iowa Department of Transportation, Iowa Department of Economic Development, The Iowa Natural Heritage Foundation, State Archeologists, and the State Historical Society are other state agencies which also exert direct and indirect influence on state recreational funding and programs.

DEMAND FOR RECREATIONAL ACTIVITIES For many years the demand for outdoor recreation and natural resource areas has been rapidly increasing. One of the most often used and least understood concepts in outdoor recreation planning is the concept of “demand”. The magnitude of demand is primarily influenced by eight (8) socioeconomic factors. 1) Age: The amount and type of recreation one pursues is related to age. The older the participant, the fewer and more passive are the pursuits. 2) Income: The number of recreation pursuits of an individual is related to income. The higher the income, the more numerous the pursuits, and the more active are pursuits in those activities requiring relatively high expenditures for equipment. 3) Education: Education affects recreation participation in much the same way as income. The higher one's educational attainment, the more numerous the pursuits. 4) Occupation: The number and variety of leisure activities are related to occupation and occupational prestige. The higher an individual's occupational prestige, the more varied and active the pursuits.

56 Clay County, Iowa 2010 Comprehensive Plan

5) Residence: Suburbanites are more active and pursue a greater variety of recreation pursuits than do urban dwellers, which in turn, have a more active participation rate than do those who live in rural areas. 6) Mobility: Outings tend to be weekend (overnight) or all day excursions. The outing destination is usually a public, non-urban area within a three-hour drive from the point of departure. 7) Opportunity for Activities: Increasing the number of recreation facilities within a given area may create a geometric increase in recreation participation. When the facilities are provided, people use them; their presence may in fact, create a demand.

8) Natural Character: Leisure patterns and leisure facilities are often used as status symbols (conspicuous consumption, conspicuous display). Different age groups present the need for specific recreational activities. These activities can be further defined as active or passive.

It must be remembered that the previously listed standards are a quality guide for the basis of planning, but they are not absolute. To really determine how these standards will affect the future of Clay County’s recreational activities and natural resources, input from the public must be received. Residents should be asked about the current system, what they like or don’t like and what they would like to see in the future.

STATE OF IOWA PROJECTED RECREATION TRENDS In 1968, the first statewide comprehensive outdoor recreation plan was prepared for Iowa. Since that time, the state has developed a recreation plan every five (5) years. In 2006, the most recent statewide comprehensive outdoor recreation plan or SCORP was developed and resulted in the “Outdoor Recreation in Iowa” plan. When planning for future outdoor recreation it becomes necessary to identify issues and priorities facing recreation activities. Considering the wide array of interests in outdoor recreation, an issue or priority to one group may be of little concern to another. The Department of Natural Resources was granted the task of bringing together many diverse persons with a strong interest in outdoor recreation, representing varying interests.

One of the primary components to the outdoor recreation plan is to explore and examine recreation trends across the state and comparisons to national trends. In order to accomplish this examination of current trends in recreational usage and desires, the Iowa Department of Natural Resources distributed 1,000 surveys to residents of Iowa. The surveys were evenly distributed across three regions of Iowa; the western third, central third and eastern third of Iowa. Based on the 2006 recreation survey completed as parted of the SCORP planning process, the top 4 recreational activities of Iowans are: . Family-oriented activities (picnicking, outdoor family gatherings) . Driving for Pleasure . Observing, feeding or photographing wildlife . Using trails for physical fitness

Similarly, in comparison to national trends, the top 5 national recreational activities according to the 2004 Outdoor Industries National Survey are:

57 Clay County, Iowa 2010 Comprehensive Plan

. Bicycling . Fishing . Hiking . Camping . Trail Running

Another major component to the 2006 Outdoor Recreation Plan for Iowa is the consideration of plan goals, performance goals and performance measures. This is different from previous planning efforts and is intended to measure success through identifying tangible and intangible outcomes. Identified below is a listing of the four goal and related performance goals of the 2006 Outdoor Recreation Plan. 1. Meet local recreation needs by providing close-to home opportunities . Develop e-SCORP, an on-line statewide recreational database. . Using a marketing approach, promote local available recreational opportunities. . Encourage Iowans to improve physical and mental health through outdoor recreation . Provide for local outdoor skills workshops and programs (families, couples, men, women, teens, and children) to help get people outdoors and active. 2. Increase availability of outdoor recreation resources . Increase outdoor associated recreation, focusing on additions to existing public lands and public lands near population centers. . Create conservation corridors (greenbelts) to improve water quality, recreation opportunities, and wildlife habitat. 3. Enhance the quality of outdoor recreation resources . Provide assistance to local communities and governments to improve the quality and revitalize the recreational use of priority water bodies. . Plan, develop, and maintain natural resources through an ecosystem based approach to protect the endemic flora and fauna and provide a quality recreational experience. . Enhance public health and safety and protect environments through upgrading or developing new horizontal infrastructure facilities to meet current environmental standards as well as today’s recreational demand. . Enhance recreational opportunities through upgrading or constructing new vertical infrastructure facilities to respond to current recreational demands. 4. Encourage state, county, city, and private sector planning for recreation to meet the needs of Iowans . Develop toolboxes for state, city, and county leaders for plan development.

58 Clay County, Iowa 2010 Comprehensive Plan

Chapter 9. ECONOMIC DEVELOPMENT

An analysis of past and present economic trends is necessary to determine patterns, trends, and amount of potential economic growth expected in the future. Economic development has become synonymous with community development in Iowa. Many consider economic development one of the most critical aspects of community development. The economic base of any county is comprised of two components, employment and income. In this section, Clay County’s employment, income and local manufacturing and industry trends are examined and compared to those of Iowa. Economic analysis provides important indicators as to the relative health of the county and potential growth in each of the land use categories.

EMPLOYMENT TRENDS Looking at the overall trends in unemployment for Clay County, Iowa and the United States since 2000, all three governmental bodies experienced similar peaks and valleys in unemployment over this 10 year trend. However, unemployment within Clay County still remained the overall lowest until the spike in unemployment to 5.9% in 2009 with the onset of the economic recession beginning in the fall of 2008. The economic impact from the downturn in the economy was especially felt at the local, state and national levels in 2009 and continuing into early 2010. The number of unemployed persons in Clay County increased steadily between 2000 and 2004, but remained low in consideration of regional and national trends. One can see how unemployment was coming off the all-time low unemployment rates of 1.5-2.0% achieved in 1999-2000. However, this trend was short lived and unemployment climbed through 2004. Then, from 2004 to 2007, all three levels of governments’ unemployment rates began dropping back by nearly a full percentage point. This lasted until the national economic recession hit in 2008 and unemployment levels reflect the downturn in the economy during 2008-2009.

Figure 30 - Unemployment rates for Clay County, Iowa and United States, 2000-2009. 10.0% Clay Co. 9.0% Iowa

8.0% United States 7.0% t

n 6.0% e c r

e 5.0% P 4.0% 3.0% 2.0% 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009* Clay Co. 2.6% 3.1% 3.8% 4.1% 4.1% 4.0% 3.4% 3.2% 3.3% 5.9% Iowa 2.8% 3.3% 3.9% 4.4% 4.6% 4.3% 3.8% 3.7% 4.1% 5.9% United States 4.0% 4.7% 5.8% 6.0% 5.5% 5.1% 4.6% 4.6% 5.8% 9.2%

Source: Iowa Workforce Development, 2010 Labor Market Information; *December data is not available for 2009

59 Clay County, Iowa 2010 Comprehensive Plan

Clay County, similar to other counties across northwest Iowa, experiences fluctuating and seasonal unemployment highs and lows. The primary factor driving seasonal unemployment in Clay County is attributed to the agricultural and construction trades. Both of these industries rely upon weather for their ability to complete work. Looking at the monthly unemployment rates for Clay County in 2009 shows these fluctuations in unemployment. In January, unemployment was at 5.6 percent, with the annual high reached in August at 6.4%. Unemployment then declined through the fall back to 5.8% by October. Oddly, Clay County’s monthly labor force and unemployment trends for 2009 do not follow the traditional fluctuations due to seasonal or weather factors. During the winter months, when on would expect more persons in the agricultural and construction trades to be without employment is when Clay County actually experience the lowest periods of unemployment. Vice Versa, during the summer months when employment opportunities should be the highest across the board, Clay County experienced its greatest period of unemployment. These trends during 2009 may be more related to the state and national economic recession trends versus traditional variations in labor force characteristics.

Clay County 2009 Monthly Unemployment Trends Jan. Feb. Mar. Apr. May June July Aug. Sep. Oct. Nov. Dec. Unemployment 5.6% 5.2% 6.0% 5.6% 5.7% 6.2% 6.0% 6.4% 6.1% 5.8% 6.0% NA Labor Force 10,360 10,210 10,430 10,310 10,390 10,760 10,360 10,080 9,990 10,140 10,000 NA

According to Iowa Workforce Development data, Clay County’s labor force varied from a low of 9,990 workers to a high of 10,760 persons in the workforce during 2009. This shift of 770 workers represents a 7.5% share of the county’s overall labor force. On the bright side, Clay County’s total labor force stands at 10,270 persons for the 2009 average year to date. This is compared to 10,010 in 2000 and 8,990 persons in 1990. Clay County has continued to increase its overall labor force by 11.3% between 1990 and 2000 and 2.6% from 2000 to 2009. With an overall growing workforce in Clay County, this is a good indicator of new and increasing jobs being created and providing opportunities for employment and residency. These labor force figures are based on the yearly average. The overall growing labor force seems to bode well for Clay County, as the employment will help to create opportunities for the county to increase its younger working population base.

Figure 31 - Labor force trends in Clay County, 1990-2009

10,500 10,270 10,010 9,830 9,850 9,760 9,760 9,760 9,760 9,780

e 10,000 c

r 9,560 9,490 o F

r 9,500 o b 8,970 a L 9,000

8,500 1990 1995 2000 2001 2002 2003 2004 2005 2006 2007 2008 2009 Year Source: Iowa Workforce Development, Labor Market Information, 2007

60 Clay County, Iowa 2010 Comprehensive Plan

INDUSTRY TRENDS Comparisons of employment and industry sectors between Clay County and the State of Iowa can provide county leaders with information relative to the economic strengths of Clay County. Furthermore, in comparison to the State of Iowa, the following data will indicate those industries in Clay County which flourish, such as the manufacturing, retail/wholesale and education/health sectors; as well as those industries which are not as prominent in Clay County, such as information technology, finance/insurance & real estate and public administration employment sectors. Below are two pie charts which represent employment trends by industrial employment sectors for both Clay County and the State of Iowa.

Figure 32 - Employment by Industrial Sector, Clay County & Iowa, 2000

Construction Agriculture/Mining Clay County Public Admin. Information 6.5% 5.5% 2.7% 3.0% Other Services 5.4% Manufacturing Arts/Recreation 18.6% TCU – Transportation, Communications 6.2% and Utilities

FIRE – Finance, Insurance and Real Estate

Education/Healh 17.8% Retail/Wholesale Professional 18.6% 5.8% FIRE TCU State of Iowa 3.9% 6.0%

Source: U.S. Census Bureau Agriculture/Mining Construction Public Admin. Information 6.2% 2000 Census 3.4% 4.4% 2.8% Other Services 4.4% Manufacturing 17.0% Arts/Recreation 6.6%

Education/Healh 21.8% Retail/Wholesale 15.6%

Professional FIRE TCU 6.1% 6.7% 4.9%

The industry employing the most people in Clay County is tied between manufacturing and the retail/wholesale sectors at 18.6% of the employment base each. When compared to the state, both of these employment sectors in Clay County are a higher percentage of the overall workforce than the state. This trend is most likely as result of the fact that the City of Spencer, Clay

61 Clay County, Iowa 2010 Comprehensive Plan

County’s County Seat, is the largest community within approximately a 10-12 county region of Northwest Iowa and therefore has a large retail draw for consumers outside of the county shopping in Spencer and Clay County. This, in turn, necessitates more employees in the retail sector to accommodate the larger than average retail market in Clay County. The Education and Health employment sector comprises the third largest group of employees in Clay County at 17.8% of the total labor force. This is compared to 21.8% at the state level. Although health and education jobs are important to Clay County, the difference in the percentage as compared to the state’s average may be attributed to the fact that there is only one hospital in Clay County, which is located in Spencer. Furthermore, of 10 cities in Clay County, only Spencer maintains a population of more than 1,000 residents and has a school district with a sizeable workforce. Other employment sectors in which there are more persons working in the industry on average in Clay County versus the state include agriculture, construction, information technology, and transportation/communications. Conversely, those employment sections in Clay county in which there are less persons working in the industry on average in comparison to the state include those working in the finance/real estate, professional, arts and recreation and public administration sectors. With more than average Clay County residents employed in the traditional “blue collar” industries, when compared to the state and less than average residents employed in traditional “white collar” industries, when compared to the state; it lends one to believe that Clay County would be considered more of a “blue collar” labor force.

The table shown below displays Iowa Workforce Development data comparing employment changes between 1990 and 2000 in Clay County. This data indicates, to some degree, how industry trends have varied within the county over the past 10 to 15 years.

Table 19 - Employment trends by Industrial Sector, Clay County, 1990, 2000, 2009 1990 2000 *2009 Agriculture and Mining 10.9% 5.5% 7.8% Construction 5.1% 6.5% 4.0% Manufacturing 14.5% 18.6% 14.9% TCU** 7.2% 6.0% 6.5% Retail/Wholesale Trade 24.0% 18.6% 10.9% Information NA 3.0% NA FIRE*** 5.2% 3.9% 5.9% Professional/Management 5.7% 5.8% 7.1% Education/Health/Social Services 19.2% 17.8% 25.5% Arts/Entertainment/Recreation 0.5% 6.2% 4.4% Other Services 4.1% 5.4% 7.1% Public Administration 3.6% 2.7% 5.9% TOTAL 100% 100% 100%

**Transportation, Communications, Utilities ***Finance, Insurance, and Real Estate * 2009 data is from the Spencer Area Laborshed Analysis, Iowa Workforce Development, June 2009 Source: U.S. Census Bureau, 1990 & 2000 Census

62 Clay County, Iowa 2010 Comprehensive Plan

The most obvious change from 1990 to 2009 in any of the industrial sectors occurs in the retail/wholesale industry that experienced a shift from 24 percent of the workforce down to only 10.9 percent of the county’s workforce by 2009. Other industrial sectors that continue to experience a declining labor force in Clay County include the construction industry and those employed in transportation, communications or utilities. With that said, there were also several industrial sectors that experienced large percentages of growth in the labor force in Clay County. For instance, the education/health and social services industry after slightly declining from 1990- 2000, grow its percentage of labor force in Clay County from 17.8% in 2000 to 25.5% in 2009. Additionally, those employed in the professional and management industry sector experienced in increase from 5.7% of the total workforce in 1990 to 7.1% of the county’s labor force by 2009. The public administration employment sector, along with other services, finance, insurance & real estate also experienced period of growth in their respective employment sectors over the past 20 years. Overall, these trends indicate that an increasing number of employment opportunities exist in Clay County and the overall labor force is experiencing growth or changing trends in a majority of the industrial sectors.

LOCATION QUOTIENT Areas of local industrial specialization within Clay County may be discovered by comparing the composition of employment in Clay County to a larger reference region. For purposes of this plan, this will be analyzed utilizing the Location Quotient method. Clay County’s employment will be compared to the employment composition of Iowa with the national employment composition being the base reference. A relatively high (or low) percentage of employment in a sector compared to the reference region may reflect a competitive advantage (or disadvantage) in that sector. Location quotients can indicate if Clay County is producing more than is needed for its own use and therefore selling excess to other markets. Location Quotients also indicate which employment sectors or types of businesses in Clay County are not accommodating the local needs and may be considered a potential source of economic “leakage” from the county.

A location quotient is simply a ratio comparing the local percentage of employment in a sector to the national average percentage of employment in that sector. A location quotient greater than one (1) suggests a regional concentration of employment in that sector, whereas a location quotient of less than one (1) suggests a regional disadvantage in that sector.

Location Quotient = % of Local Employment in Clay County % of Local Employment in United States

In the following table, the percentage of employment by sector for Clay County and Iowa are contained in columns 1 and 2. These values are used to derive county and state location quotients for each sector. The location quotients are displayed in columns 3 and 4. It may be informative to compare the county’s location quotients to statewide values by sector. For example, if the county's location quotient is greater than one (1) and it exceeds the statewide average, the county may have a regional, as well as a national, competitive advantage in that sector.

63 Clay County, Iowa 2010 Comprehensive Plan

Table 20 - Nonfarm Employment by Sector: Percentage Values and Location Quotients, 2008 Percent of Employment Location Quotient Clay County Iowa Clay County Iowa Forestry, fishing, and related (D) 1.2% (D) 1.19 activities Mining (D) 0.2% (D) 0.27 Utilities 0.7% 0.6% 1.33 1.15 Construction 4.9% 5.8% 0.77 0.92 Manufacturing 17.1% 18.1% 1.45 1.53 Wholesale trade 7.9% 5.5% 1.50 1.04 Retail trade 19.9% 14.2% 1.47 1.05 Transportation and warehousing 4.2% 4.2% 1.11 1.10 Information 2.7% 2.7% 1.03 1.01 Finance and insurance 2.7% 7.1% 0.51 1.38 Real estate and rental and leasing 1.0% 1.1% 0.51 0.57 Professional and technical services 2.4% 3.4% 0.35 0.49 Management of companies and enterprises 1.3% 1.1% 0.80 0.67 Administrative and waste services 7.0% 5.3% 1.00 0.74 Educational services 0.8% 2.0% 0.37 0.95 Health care and social assistance 11.1% 13.6% 0.80 0.98 Arts, entertainment, and recreation 1.3% 1.7% 0.75 0.95 Accommodation and food services 8.0% 9.1% 0.79 0.91 Other services, except public administration 3.8% 3.3% 0.97 0.83 (D) = Not disclosed Source: U.S. Department of Labor, Bureau of Labor Statistics, Iowa Workforce Development - http://data.bls.gov

INDUSTRY/EMPLOYMENT PROJECTIONS The Iowa Workforce Development compiles current levels of industry employment for workforce regions across the state and projects the level of anticipated employment in 10 years for each of these industries. This employment projection for 2016 is only available on a regional basis. The data for Region 3&4 includes the counties of Clay, Lyon, Osceola, O’Brien, Dickinson, Clay, Buena Vista, Palo Alto, Emmet and Kossuth. The eastern portion of this region (Region 3) which is comprised of Clay, Dickinson, Buena Vista, Emmet, Palo Alto and Kossuth counties constitutes the primary labor shed for Clay County. Therefore, the employment projections presented below should provide useful data in regards to the employment trends and projected percentages of anticipated growth in Clay County’s labor shed.

Table 21 - Iowa Workforce Development Region 3&4 Employment Projections, 2006-2016 Industry Description 2006 Est. 2016 Projected Total Percent Change Employment Employment Growth Self employed/Family worker 6,545 7,005 460 7.0% Utilities 215 205 -10 -4.7% Construction 970 1,040 70 7.2% Wood product manufacturing 870 1,070 200 23.0% Fabricated metal manufacturing 1,245 1,155 -90 -7.2%

64 Clay County, Iowa 2010 Comprehensive Plan

Industry Description 2006 Est. 2016 Projected Total Percent Change Employment Employment Growth Machinery manufacturing 2,185 2,150 -35 -1.6% Transportation equipment 2,240 2,915 475 19.5% Miscellaneous 665 700 35 5.3% Furniture/Home Furnishing 240 285 45 18.8% Building materials 855 1,000 145 17.0% Gasoline stations 1,045 1,140 95 9.1% General merchandise 1,125 1,255 130 11.6% Miscellaneous retailers 450 445 -5 -1.1% Truck transportation 1,260 1,545 285 22.6% Warehousing and storage 35 40 5 14.3% Telecommunications 235 240 5 2.1% Insurance and related 715 885 170 23.8% Real estate 280 310 30 10.7% Professional, scientific & 1,225 1,585 360 29.4% Management 365 450 85 23.3% Administrative and support 1,235 1,550 315 25.5% Education 6,535 7,160 625 9.6% Hospitals 2,995 3,555 600 20.3% Nursing and residential 3,145 3,835 690 21.9% Accommodation/hospitality 825 925 100 12.1% Food service and drinking 3,940 4,310 370 9.4% Repair and maintenance 585 690 105 17.9% Local government 3,065 3,430 365 11.9% State government 335 335 0 0.0% Federal government 170 160 -10 -5.9% Source: Labor Market and Economic Research Bureau, Iowa Workforce Development

COMMUTING PATTERNS According to the 2000 census data, the average commute time for Clay County residents was 14.2 minutes. While more than 80 percent of county residents drove themselves back and forth to work, there are nearly 10 percent who carpool, another 4.7 percent that work at home, and the 3.2 percent that walk to work. These statistics indicate that although most county residents are still driving to work, the moderate commute time suggests most residents are still working either in or nearby Clay County. Commuting patterns not only show how far people are driving to work on a daily basis, but also from where and to where people are working Clay County. In other words, the following table provides an overview of where the residents of Clay County are working. According to the statistics presented in the following table, 87 percent of those that live in Clay County also work in Clay County. The place where the most Clay County residents travel to work is Dickinson County, in which 473 workers or more than 5% of the workforce drives to. Clay County workers also drive on a regular basis to places of employment in several counties in the neighboring states of Minnesota and South Dakota.

65 Clay County, Iowa 2010 Comprehensive Plan

Table 22 - County to County Worker Flow for Clay County, 2000 (Workers 16 years and older)

Workers 16 years and older Place of Residence Place of Work Number Percent Clay Co Clay Co. 7,839 87.0% Clay Co. Dickinson Co. 473 5.2% Clay Co. Palo Alto Co. 151 1.7% Clay Co. Buena Vista Co. 147 1.6% Clay Co. O'Brien Co. 119 1.3% Clay Co. Emmet Co. 36 0.4% Clay Co. Cherokee Co. 23 0.3% Clay Co. Osceola Co. 19 0.2% Clay Co. Olmsted Co., MN 15 0.2% Clay Co. Pocahontas Co. 14 0.2% Clay Co. Minnehaha Co., SD 13 0.1% Clay Co. Woodbury Co. 13 0.1% Clay Co. Dakota Co., MN 12 0.1% Clay Co. Eau Claire Co., WI 11 0.1% Clay Co. Lyon Co., MN 11 0.1% Clay Co. Martin Co., MN 11 0.1% Clay Co. Polk Co. 11 0.1% Clay Co. Black Hawk Co. 9 0.1% Clay Co. Ramsey Co., MN 9 0.1% Clay Co. Allamakee Co. 8 0.1% Clay Co. Plymouth Co. 8 0.1% Clay Co. Pottawattamie Co. 7 0.1% Clay Co. Crawford Co. 6 0.1% Clay Co. Lyon Co. 6 0.1% Clay Co. Sioux Co. 6 0.1% Clay Co. Winnebago Co. 6 0.1% Clay Co. Winneshiek Co. 6 0.1% Clay Co. Louisa Co. 5 0.1% Clay Co. (Other Locations) 21 0.2% Total 9,015 Prepared By: StateLibraryof Iowa, StateData CenterProgram Source: U.S. Bureau of theCensus, 2000 Census

WAGES & INCOME DISTRIBUTION As opportunities for employment are presented in Clay County, the county and the cities within Clay County will realize benefits including a greater tax base and potential for an increase in population. Studying the income distribution of a county can indicate overall wealth and subsequent purchasing power, providing some insight into the relative economic health of Clay County. One way of analyzing income is to examine the median income level of the county. The 2000 median income in Clay County is $35,799 for households and $42,769 for families. According to census data, the mean retirement income in Clay County is $15,081. When Clay County median income figures are compared to the State of Iowa, Clay County is slightly lower than the state’s averages. The median income for all households in Iowa is approximately 10% higher than the average for Clay County at $39,469. Similarly, Iowa also has a higher median family income (+12%) at $48,005 when compared to Clay County. With that said, Iowa maintains a lower median retirement income of $13,862 (-8%) as compared to Clay County. Below is a comparative listing of median household and family incomes for Clay County and those counties adjacent to Clay County.

66 Clay County, Iowa 2010 Comprehensive Plan

Table 23 - Household and Family Income Comparison of Clay County & Surrounding Counties, 2000

2000 Median 2000 Median 2000 Mean Household Income Family Income Retirement Income Clay County $35,799 $42,769 $15,081 Dickinson County $39,020 $47,739 $13,014 Emmet County $33,305 $41,296 $ 7,597 Palo Alto County $32,409 $41,808 $ 8,489 Pocahontas County $33,362 $40,568 $13,604 Buena Vista County $35,300 $41,549 $10,204 Cherokee County $35,142 $42,897 $ 8,947 O’Brien County $35,758 $42,959 $ 9,596 Osceola County $34,274 $41,977 $ 9,923

Source: U.S. Census Bureau, 2000 Census

Along with age and population figures, it is important to look at income distribution to examine what the residents of Clay County are earning in wages and salaries. This information will help determine the amount that residents can afford for current and future housing and living expenses, along with potential purchasing power. The following table shows household income for Clay County residents according to 2000 census data.

Table 24 - Clay County Household and Family Income Distribution

# of % of Total % of Total $ In Income # of Families Households Households Families Less than $10,000 607 8.3% 163 3.3% $10,000-14,999 636 8.7% 230 4.7% $15,000-24,999 1,174 16.1% 604 12.4% $25,000-34,999 1,128 15.5% 727 14.9% $35,000-49,999 1,602 22.0% 1,260 25.8% $50,000-74,999 1,302 17.9% 1,155 23.7% $75,000-99,999 408 5.6% 335 6.9% $100,000-149,999 267 3.7% 260 5.3% $150,000-$199,999 45 0.6% 43 0.9% $200,000 or more 105 1.4% 98 2.0% Total Households 7,274 100.0% 4,875 100.0%

Source: U.S. Census Bureau, 2000

The Iowa Workforce Development compiles data on current wage levels for several occupations and industries. The wage survey data in the following table is reported for countywide averages in Clay County, and does not report at the city level.

67 Clay County, Iowa 2010 Comprehensive Plan

Table 25 - Iowa Workforce Development Wage Survey for Clay County, 2007 Occupation 2007 Est. 2007 2007 2007 Description Employment Mean Wage Entry Wage Median Wage Management Occupations 300 $33.27 $16.11 $30.06 Business & Financial Operations 130 $20.76 $12.40 $19.89 Computer & Mathematical 50 $27.97 $16.64 $24.49 Architecture & Engineering 40 $24.31 $17.03 $22.99 Life, Physical & Social Science 50 $23.51 $16.33 $21.17 Community and Social Services 90 $17.94 $13.55 $17.56 Education, Training & Library 400 $14.37 $9.37 $14.34 Arts, Design, Entertainment & Sports NA $12.28 $7.41 $11.96 Healthcare Practitioners & Technical 590 $24.16 $13.10 $19.88 Healthcare Support NA $10.85 $10.06 $10.72 Protective Service 80 $15.46 $6.64 $10.47 Food Preparation and Serving 1,770 $7.41 $6.41 $6.91 Building & Grounds Maintenance 290 $10.68 $7.19 $9.85 Personal Care & Service Occupations 310 $9.83 $7.51 $8.87 Sales and Related Occupations 1,120 $11.89 $6.95 $8.98 Office and Administrative Support 1,100 $12.60 $8.73 $11.79 Construction and Extraction 450 $12.77 $8.37 $12.66 Installation, Maintenance & Repair 360 $16.81 $10.70 $15.61 Production Occupations 1,260 $14.45 $9.95 $13.91 Transportation & Material Moving 790 $15.32 $9.22 $14.05 Source: Iowa Workforce Development, Iowa Wage Surveys Note: Reference period for the data is the 2nd quarter of 2007. Data was developed from the May, 2006 OES Wage Survey and updated to 2007 using the Employment Cost Index.

RETAIL TRADE ANALYSIS A look into the county’s retail trade statistics translates into how successful the retail and sales industries are to Clay County. This data also translates into the purchasing power of the county’s residents. The trends for retail trade as identified in this section is made available from the Iowa State University Extension, Regional Capacity Analysis Program or ReCAP. The data presented in this retail trade analysis looks at comparative 2007 and 2008 data between Clay County, Iowa and peer counties of Clay County. The entire FY 2008 Retail Sales Analysis & Report for Clay County may be seen in an appendix at the conclusion of this plan. Characteristics of retail activity are often indicative of the overall economic vitality of the city. All sales figures are adjusted for inflation and expressed in 2008 dollars. Below is a table and graph of the county’s total retail sales and per capita sales compared against the county’s peer group and the entire State of Iowa.

Table 26 - Retail Trade Overview for Clay County, 2007-2008 2008 2007 %Change 2007-2008 Real retail sales ($ millions) Clay County 268.9 257.5 4.4% Peer Group 4,837.8 4,767.1 1.5% State of Iowa 33,089.0 32,263.5 2.6%

68 Clay County, Iowa 2010 Comprehensive Plan

Real Per capita retail sales ($) Clay County $16,114 $15,386 4.7% Peer Group $ 7,389 $ 7,253 1.9% State of Iowa $11,074 $10,854 2.0% Real Retail sales per business Clay County $380,110 $372,271 2.1% State of Iowa $378,122 $373,477 1.2%

Source: FY 2008 Retail Sales Analysis & Report for Clay County, Iowa; ISU ReCAP, 2008 Note: The Peer Group for Clay County is comprised of 45 other counties in Iowa with a total population of 654,690 and classified as non-urban, small trade areas.

Figure 33 - Retail Sales and Per Capita Sales for Clay County, 1980-2008

300 268.9 275 252.6 250 216 222.7 213.4 204.9 204.7 225 200.3 199.8 200 175 150 123.4 150 116.5 110.9 125 100 75 50 1980 1985 1990 1995 2000 2001 2002 2003 2004 2005 2006 2007 2008

Figure 34 - Per Capita Sales for Clay County, Peer Group and Iowa, 2008

Real Sales per Capita 1978-2008

Clay County State of Iowa Peer Group

Source: This chart provided courtesy of the FY 2008 Retail Sales Analysis & Report for Clay County

69 Clay County, Iowa 2010 Comprehensive Plan

According to a 2008 retail trade analysis provided by Iowa State University, Regional Capacity Analysis Program, Clay County experienced retail sales of nearly 269 million during 2008. This figure has increased by 68.6 million or 34.2 percent since 2000. However, this eight-year increase in retail sales is fully understood when examining the long term trends of retail sales figures in Clay County. Retail sales have increased an astonishing 130.8 percent or more than doubling their sales since 1980. Although the retail sales data in real figures looks impressive in Clay County, when you consider in the rate of inflation from 1980, the 116.5 million from 1980 has a value today of 283.7 million, as compared to the current retail sales of 268.9 million. Furthermore, in 1980 there were 764 retail establishments collecting sales tax in Clay County. In 1990 the number of retail establishments had decreased to a total of 734. By the year 2000, retail establishments continued to decline to a total of 710. The current number of recorded retail establishments as of 2008 is 708 in Clay County.

Figure 35 - 2008 Total Retail Sales Comparison of Clay County and surrounding counties

Minnesota

Osceola Co. Dickinson Co. Emmet Co. $35.3 M $258.4 M $81.6 M

O’Brien Co. Clay Co. Palo Alto Co. $110.7 M $268.9 M $77.4 M

Cherokee Co. Buena Vista Co. Pocahontas Co. $90.4 M $173.0 M $42.0 M

As seen in the map above, Clay County has the greatest of amount of retails sales in comparison to all of the surrounding counties. The county with the next highest retail sales is Dickinson County $258.4 million, which is 4.1% percent lower than Clay County. Other neighboring counties such as Pocahontas and Osceola Counties are respectively collecting 6 and 8 times fewer retail sales, when compared to Clay County. The amount of retail activity in Clay County indicates a strong and vibrant retail economy.

Another good indicator of the strength and vitality of a county’s retail economy is to look at the “pull factor.” The pull factor is a numerical indicator of the amount of retail activity taking place within or out of a jurisdiction. The number “1” indicates that the appropriate amount of retail sales is taking place for the size of jurisdiction and population residing within a given area. Any

70 Clay County, Iowa 2010 Comprehensive Plan number below a “1” indicates that fewer people are shopping in the county than is expected indicating a retail “leakage”. Whereas any number above a “1” indicates the county is drawing in more retail sales that the local population should be able to sustain, indicating a retail “surplus”. In 1980, Clay County’s pull factor was 1.39 indicating that retail sales were approximately 40% higher than expected figures. However, by 1990, the pull factor decreased to 1.12, indicating a decrease of 19%. By 2008, Clay County has once again increased its pull factor to an all time high of 1.58 indicating retail sales of nearly 60% greater than expected in retail sales. These factors indicate that Clay County retail businesses are drawing in a substantial amount of out of area shoppers, which are spending their money in Clay County. When looking into the surplus or leakage of a county’s retail sales, it is often a good idea to take a comparable look into how surrounding counties are performing. The regional pull factor map on the following page indicates that Clay County is clearly drawing in buyers from surrounding counties, whereas the pull factors of less than 1 in neighboring counties are shopping elsewhere than their own county, which is most likely Clay County.

Figure 36 - 2008 Pull Factor Comparison of Clay County and surrounding counties

Minnesota

Osceola Co. Dickinson Co. Emmet Co. 0.68 1.23 0.86

O’Brien Co. Clay Co. Palo Alto Co. 0.79 1.58 0.88

Cherokee Co. Buena Vista Co. Pocahontas Co. 0.80 0.97 0.65

Overall, the pull factor, or the numerical indicator of retail sales surplus or leakage shows Clay County has a substantially larger retail draw than its peer group of 45 other Iowa counties as well as a much larger pull factor that the State of Iowa. Below is a chart showing the comparison of Clay Counties pull factor from the 2008 Retail Trade Analysis & Report prepared by the Iowa State University ReCAP program.

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Figure 37 - Pull Factor for Clay County and Peer Group, 2008

2 Clay County 1.8 1.6 Peer Group 1.4 1.2 1 0.8 0.6 0.4 0.2 0

8 6 8 0 2 4 2 4 6 8 7 0 2 84 8 8 9 9 9 6 8 0 0 0 0 0 9 8 8 9 9 9 9 9 9 9 99 00 0 0 0 0 1 19 19 1 1 1 1 1 1 19 1 2 2 2 2 2 Note: This chart is made with data from the FY 2008 Retail Sales Analysis & Report for Clay County. The Peer Group for Clay County is comprised of 45 other counties in Iowa with a total population of 654,690 and classified as non-urban, small trade areas.

As a final testament to the strength and vitality of Clay County’s strong retail economy, it is interesting to see where the county ranks in comparison to all other counties in Iowa with regards to economic indicators. Below are two charts that show Clay County ranks first in the State of Iowa in pull factor indicators and also first in the number of retail sales per capita. It is also interesting to note that of the top five counties ranked for pull factor and retail sales per capita, that Clay County is the smallest of these counties in terms of population, but maintains the greatest amount of retail economic activity. In addition to the two tables shown below, Clay County also places 12th in the state in growth in retail sales from 2000-2008 at 12.2%.

Table 27 - 2008 Pull Factor Ranking in the State of Iowa Rank County 2008 Population Pull Factor 1 Clay County 16,689 1.58 2 Woodbury County 102,095 1.35 3 Cerro Gordo County 44,016 1.32 4 Webster County 38,587 1.25 5 Dickinson County 16,696 1.23

Table 28 - 2008 Retail Sales Per Capita Ranking in the State of Iowa Rank County 2008 Population Sales Per Capita 1 Clay County 16,689 $16,114 2 Polk County 418,339 $15,709 3 Dickinson County 16,696 $15,479 4 Linn County 205,836 $15,121 5 Cerro Gordo County 44,016 $14,790

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TRADE AREA CAPTURE Another method for determining the amount of retail sales activity occurring within Clay County is to calculate the county’s trade area capture. The purpose of the "Trade Area Capture" formula is to examine how many customers or potential purchasers are drawn to Clay County to shop for any type of product at any given time. The trade area capture estimates the portion of customers the county actually draws from within and outside its boundaries. The trade area capture analysis is also be used by retail sectors to understand trade growth or decline.

Table 29 - TRADE AREA CAPTURE FORMULA A / [ B x (C / D) ] A = Total Retail Sales for Clay County B = Per Capita Sales for the State of Iowa C = Clay County Per Capita Income D = State of Iowa Per Capita Income

When comparing the trade capture area of Clay County for the years 1990 and 2000, the trend indicates a growing trade capture area. In other words, the county is gaining additional sales from other communities and counties outside of Clay County.

Clay County's trade area capture for the year 2007 is as follows: A (Clay County Total Retail Sales) = $257,518,711 B (State Per Capita Sales) = $10,854 C (Clay County per Capita Income) = $30,095 D (State per Capita Income) = $32,672 Trade Area Capture for the Clay County (2007) = 25,789 customers (2007 pop. 16,737)

This means that businesses in Clay County captured the sales of 41,278 customers from its population base of 31,589 or 131% of its expected customers. In this projection, the county theoretically captured retail sales in the amount that would support a population base of nearly 10,000 more residents than Clay County currently has.

Clay County’s trade area capture for the year 2000 is as follows: A (Total Retail Sales) = $200,287,506 B (State Per Capita Sales) = $9,427 C (Clay County per Capita Income) = $19,451 D (State per Capita Income) = $26,554 Trade Area Capture for the Clay County (2000) = 29,105 customers (2000 pop. 17,372)

This means that businesses in Clay County captured the sales of 25,789 customers from its 2007 population base of 16,737 or 154% of its customers. Again, in 2000 the county theoretically captured retail sales in the amount that would support a population base of nearly 12,000 more residents than Clay County’s 2000 population.

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IOWA LAKES CORRIDOR DEVELOPMENT CORP - A PERSPECTIVE ON REGIONAL ECONOMIC DEVELOPMENT The Iowa Lakes Corridor Development Corporation was formed in 1992, under the name of Iowa Great Lakes Corridor of Opportunity, as a joint two county economic development commission to further the economic and business climate of Clay and Dickinson counties. The Corridor was formed as a non-profit organization able to offer joint services to participating public entities in areas of mutual advantage for the entire region. The Corridor is a separate entity for legal purposes but serves the economic development needs of each contributing local government, including Clay County.

The Corridor has experienced several changes in recent years to help foster and promote a healthier, stronger, and expanded economic base in northwest Iowa. In November 2005, the Corridor announced the expansion of the region’s boundaries to include Emmet County. Additionally, by the spring of 2006, the Corridor announced that Buena Vista County would be joining forces with this multi-county economic development corporation. Today the Iowa Lakes Corridor Development Corporation is the regional economic development agency for Buena Vista, Clay, Dickinson and Emmet Counties. One of the reasons for the Corridor’s expansion after successfully operating for 13 years as a Clay/Dickinson County economic development commission is because the State of Iowa looks more favorably at those regions comprised of at least three counties. The Corridor is now eligible for future grant opportunities through the Iowa Department of Economic Development.

According to the Corridor’s website, www.lakescorridor.com, this economic development organization’s mission is “To foster, encourage, promote aid or otherwise assist in the economic growth and development of the four county region.” The Iowa Lakes Corridor invites all residents, employers and visitors to the area to experience all the activities the region has to offer. This glacial lakes region of Iowa boasts some of the most beautiful landscapes, along with offering a blend of commerce, leisure, culture, education and hospitality that will surely encourage visitors to stay.

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Chapter 10. TRANSPORTATION & INFRASTRUCTURE

Clay County’s surface transportation network includes a comprehensive roadway system including two major federal highway and one state highway, county highways, multiple secondary roads and rural or unimproved roads.

As of January 1, 2009, according to the Iowa Department of Transportation, Clay County’s secondary roadway network consists of 1,004 total miles. Secondary roads are those roads not classified as either a federal or state highway route. Of these road miles, 52.2 miles are considered rural primary miles and the remaining 951.7 miles comprises the secondary roads system. There are 4.8 miles of dirt or unpaved secondary roads which accounts for only 0.5% of the secondary roads. Below is a table identifying road miles and surfacing types in Clay County. Additionally, gravel roads account for 77.4% of all secondary roads in the county, while asphalt or PCC account for nearly 23.9% of all secondary roads in Clay County.

Table 30 - Secondary Road Miles and Surface Types in Clay County, 2009

Surface Type Earth (dirt) Gravel Bituminous Asphalt PCC Combination

Total miles by surface 4.82 736.60 0.07 207.36 20.13 0.00

During the past two decades, the secondary roads in Clay County have experienced a significant increase in traffic, as both residents and farmers seek alternate routes in order to achieve quicker travel times and less congestion. Additionally, farm-to-market roads also received a considerable increase in use as axle loads for trucks and trailers continue to increase. Currently in Clay County, there are a total of 311.2 miles of farm to market roads. Of the farm to market roads none are earth or dirt (not surfaced). Conversely, there is 31.1% of the county’s Farm to Market roads surfaced with gravel and 68.9% surfaced with asphalt or PCC. Below is a table identifying Farm to Market road miles and surfacing in Clay County.

Table 31 - Farm to Market Road Miles and Surface Types in Clay County, 2009

Surface Type Earth (dirt) Gravel Bituminous Asphalt PCC Combination

Total miles by surface 0.00 96.67 0.07 201.26 13.23 0.00

Clay County is experiencing a stable to slightly declining population base, while at the same time remaining a very intensely agricultural county in northwest Iowa. Although current and future road and surfacing projects may not be driven by new development or growth, the county is faced with a continually aging and deteriorating network of both rural primary and secondary roads that are the responsibility of the county to maintain and keep in a safe condition. The Clay County Engineering Department will continue to emphasize a balance between rehabilitation of existing paved roads, replacement of deteriorating or outdated roads and accommodating those areas

75 Clay County, Iowa 2010 Comprehensive Plan seeking new development. Over the continuation of the next fifteen to twenty years in Clay County, the Board of Supervisors and staff will continue to emphasize and participate in the rehabilitation and repair of existing roads rather than new paving. Gravel roads serving uninhabited areas of the county (level B and C service roads) are left unplowed during the winter.

Figure 38 - 2009 Iowa DOT Transportation Map

Note: map courtesy of www.iowadotmaps.com

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TRANSPORTATION PLANNING FACTORS Clay County’s primary and secondary road network is an indispensable resource for the county. Few other elements so drastically affect both existing and the potential for new developments. Traffic systems have evolved from a constantly changing set of determinants. A few of these determinants governing current and future roadway design are:

Psychological Factors: 1. The population masses using a traffic system tend to follow the fastest course. 2. When a properly designed traffic system is not provided, the driving public establishes one by finding alternative routes, regardless of adjacent land uses and other planning considerations. 3. The driving public tends to drive according to environmental conditions of the roadway.

Economic Factors: 1. Streets and roadways comprise a large percentage of land acreage within the county and, consequently, substantial capital assets are tied up in the total land value of the roadways. 2. The current capital expenditures for road improvements, maintenance costs, construction costs, etc., of the roads are a substantial portion of county, state, and federal expenditures.

Physical Factors: 1. Street grades and the grades of abutting properties may restrict driver sight distances. 2. Street and county road intersections can have severely restricted sight clearances as a result of private/public signs, trees, and crops during certain times of the year. 3. Poor intersections, street alignment, right-of-ways, grading and drainage techniques, etc. can contribute safety hazards conditions which can severely reduce traffic flow capacities.

TRAFFIC FLOW Traffic flow surveys are recorded in each county in the state every four (4) years. The most recent traffic county survey recorded in Clay County was in 2007. Prior to 2007, historical traffic data is recorded for 2003 and 1999 in Clay County, and a new survey is scheduled to be completed during the summer of 2011. Many portions of the highway system in Clay County have experienced traffic increases over the past four years, whereas other rural areas of the county have seen declines in traffic flow.

Since the scale of the IDOT 2007 Annual Average Daily Traffic map for Clay County would be too small to be legible within this plan, sections of the map surrounding the 10 incorporated cities of Clay County have been included on the following pages to provide an overview of the transportation trends in these parts of the county. The entire Annual Average Daily Traffic maps for Clay County may be viewed online at the IDOT’s website at: http://www.iowadotmaps.com/.

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Figure 39 - 2007 IDOT Annual Average Daily Traffic map sections near the incorporated cities of Clay County

Note: The above map is for reference purposes only. A clearer and more legible map may be seen online at the IDOT’s website at: www.iowadotmaps.com

78 Clay County, Iowa 2010 Comprehensive Plan

Following is a listing of traffic counts at some of the most heavily utilized highways, roads and intersections in Clay County, based upon the 2007 IDOT traffic survey. Table 32 - IDOT Annual Average Daily Traffic map sections near the incorporated cities of Clay County Highway 18 2007 ADT 2003 ADT East County line - 4,120 vehicles 3,560 vehicles East of Dickens - 4,120 vehicles 3,560 vehicles West of Dickens - 4,400 vehicles 4,000 vehicles East of Spencer - 4,400 vehicles 4,000 vehicles West of Spencer - 2,220 vehicles 2,790 vehicles East of Everly - 2,220 vehicles 2,790 vehicles West of Everly - 3,010 vehicles 3,170 vehicles Highway 71 2007 ADT 2003 ADT North of Fostoria - 8,300 vehicles 8,700 vehicles South of Fostoria - 8,500 vehicles 8,400 vehicles North of Spencer - 9,900 vehicles 9,900 vehicles South of Spencer - 6,100 vehicles 4,710 vehicles At Greenville - 3,210 vehicles 3,580 vehicles North of Highway 10 - 2,970 vehicles 3,280 vehicles South of Highway 10 - 3,630 vehicles 3,760 vehicles Highway 10 2007 ADT 2003 ADT At Highway 71 - 570 vehicles 730 vehicles East of Peterson - 610 vehicles 860 vehicles West of Peterson - 950 vehicles 1,170 vehicles County Hwy. B-63 2007 ADT 2003 ADT East County line - 210 vehicles 310 vehicles East of Webb - 340 vehicles 430 vehicles West of Webb - 300 vehicles 340 vehicles At Highway 71 - 300 vehicles 400 vehicles County Hwy B-40 2007 ADT 2003 ADT At Highway 71 - 980 vehicles 1,430 vehicles East of Royal - 1,240 vehicles 1,470 vehicles West of Royal - 990 vehicles 560 vehicles West County line - 580 vehicles 720 vehicles ADT = Average Daily Traffic

STREET CLASSIFICATION (DEFINITIONS) An explanation of the following street definitions is necessary for the proper understanding of the county’s street/road plan, as well as reading and comprehending IDOT’s Federal Functional Classification map. The definitions below are to be considered basic design guidelines that serve as framework for satisfactory design of new street and highways facilities. The County’s Engineer is encouraged to develop the design based on this framework and tailored to particular situations that are consistent with the general purpose and intent of the design criteria through the exercise of sound engineering judgment. Cost effective design is encouraged along with the joint use of the transportation corridor and the consideration of the environment.

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The following street classification definitions are in accordance with the 2004 Iowa Statewide Urban Design Standards for public improvements. Streets and highways are functionally classified according to the character of service they are intended to provide. The three major functional classifications for urbanized areas are arterials, collectors, and local streets and are consistent with American Association of State Highway & Transportation Officials (AASHTO). ARTERIAL STREETS 1. Major/Principal Arterial (Primary Highway Extensions) - The major/principal arterials serves major centers of activity in urbanized areas and carries a high proportion of total urban travel on a minimum of miles. The major/principal arterial system carries most trips entering and leaving the area as well as most of the through movements bypassing the central City. Additionally, significant intra-region travel and outlining residential areas are served by principal arterials. Frequently, the major/principal arterial carries important intra-urban as well as inter-city bus routes. Finally, this system provides continuity for all rural arterials. Access to the principal arterial is specifically limited in order to provide maximum capacity and through movement mobility. Although no firm spacing rule applies in all or even in most circumstances, the spacing between principal arterials may vary from less than one mile in highly developed areas to five miles or more in urban fringes.

2. Minor Arterial (Primary and Non-Primary) - The non-primary arterial connects with and augments the principal arterial system. It accumulates trips of moderate length at somewhat lower level of through movement versus principal arterials. This system places more emphasis on land access but still has specific limits on access points. A minor arterial may carry local traffic providing inter-community service, but typically does not penetrate neighborhoods. This system includes urban connections to rural collector roads where such streets have not been classified as urban principal arterials. The spacing of minor arterials may vary from 1/8 to 1/2 mile in densely developed areas to 2 miles in suburban fringes.

COLLECTOR STREETS 1. Major Collector - This type of street provides for movement of traffic between arterial routes and minor collectors and may at moderately lower speeds collect traffic from local streets and residential and commercial areas. A major collector has control of access to abutting properties with a majority of access at local street connections. Normally, a slightly higher emphasis is placed on through movements than direct land access.

2. Minor Collector - This type of street provides movement of traffic between major collector routes and residential and commercial local streets as well as providing access to abutting property at moderate low speeds. A consideration for through movements and direct land access is normally equal.

LOCAL STREETS Local streets provides for the movement of traffic between collectors and residential and commercial areas. Local streets provide direct access to abutting residential and commercial property and carries low traffic volumes at low speeds on relatively short trips. Private streets are similar to the local streets but generally are located on dead-end roads less than 250 foot in length, short loop streets less than 600 feet in length or frontage roads parallel to public streets.

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FEDERAL FUNCTIONAL CLASSIFICATION OF ROADS The Iowa DOT Federal Functional Classification map depicts major transportation routes across Clay County. Classifications of roads found in the county include principal arterial, minor arterial, major collector, minor collector, and local streets.

Figure 40 - Clay County Federal Functional Classification Map, IDOT

Note: The above map is for reference purposes only. A clearer and more legible map may be seen online at the IDOT’s website at: www.iowadotmaps.com

81 Clay County, Iowa 2010 Comprehensive Plan

Furthermore, in addition to the county’s rural federal classification map is another federal functional map indicating the road classifications located within the “Spencer Small Urban Area” located within Clay County. This “urban area” as classified by the Iowa Department of Transportation meets the definition of a small urban center by having a population in excess of 5,000. The small urban centers or “micropolitan areas” are specifically mapped with designated federal functional classification routes individually. The Spencer small urban center has a population base of 11,317.

Figure 41 - City of Spencer Small Urban Center Federal Functional Classification Map

Figure 36 - Clay County Federal Functional Classification Map

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CLAY COUNTY 5-YEAR ROAD CONSTRUCTION PLAN The Clay County Engineering Department has prepared and annually updates and prioritizes its long-range road construction program. In September 2009, the Clay County Engineering Department provided the most recent 5-year road construction program for purposes of including in this comprehensive plan. The following road construction plan begins with FY 2009 and identifies road projects through FY 2013. Below is a map identifying each of the county’s proposed road projects.

Figure 42 - Clay County 5 Year Road Construction Program

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PUBLIC TRANSIT SERVICES The Regional Transit Authority (RTA) dba as RIDES is the local transit provider for Clay County. RIDES is the regional transit provider for a nine (9) county region in Northwest Iowa. Specifically for Clay County, RIDES provides fixed route and on demand transit services to several communities in Clay County. Anyone living in Clay County can contact the regional transit provider for on demand taxi service to schedule rides either inter-county or anywhere else within the nine county service area covered by RIDES. Other services provided to Clay County residents include the Medivan. When residents of the county need transportation assistance to healthcare appointments, RIDES provides a safe, reliable form of transportation.

RAILROAD SERVICES Clay County is served by one active rail lines transversing the county from east to west. The Iowa Chicago & Eastern RR Co. (ICE) line bisects the northern half of the county paralleling the U.S. Highway 18 corridor. This rail line primarily serves the communities of Dickens, Spencer and Everly in Clay County. As expressed in the agricultural section of this plan, the local grain elevators and alternative fuel plants (ethanol) are the primary sources utilizing rail service in Clay County for the shipment of their commodities. There is no piggyback ramp available locally. In addition to the ICE rail line transversing the county, there is a small rail spur that branches off this main line within the City of Spencer. The spur line is owned by the City of Spencer and provides an access for rail cars to deliver shipments of raw product to a wood framing and building company located on the north side of Spencer.

Figure 43 - 2006 IDOT Railroad Service Map

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AIRPORT SERVICES Of the ten (10) incorporated cities in Clay Photo of NW Iowa Regional Airport County there is only one airport to service the needs of the county. The Northwest Iowa Regional Airport located in the northwest corner of Spencer (County Seat) is a publicly owned airport operated by the City of Spencer. The airport is situated 2 miles southwest of the north intersection of Highways 18 and 71 in Clay County. This airport serves the corporate, business, private and recreational needs of the community, Clay County and much of Northwest Iowa. The airport was originally Photo courtesy of wwww.airnav.com opened in 1942 on a 200 acre site. Today, the airport property covers 883 acres in Spencer and Clay County. 38.5 acres is paved runways, taxiways and parking with another 2 acres covered by buildings. The remaining acres are utilized for the protection of air space and are currently utilized for agricultural purposes.

Runway 12/30 is 6,000 feet in length and 100 feet wide. The runway is concrete in good condition. Runway 18/36 is 5,100 feet in length and 75 feet wide. This runway is also concrete and in good condition. According to the resource AirNav.com, there are 32 aircraft based on the airport, with 25 being single engine planes, 5 multi engine planes and 2 Ultralights. Operations average 41 aircraft per day with 45% of the aircraft activity being for transient general aviation usage, 31% for local general aviation and 24% of aircraft activity for air taxi services. These figures were calculated from a 12 month usage survey in 2007.

Other general aviation airports within close proximity to Clay County offering instrument procedures include Fuller Airport (City of Milford) – 10 miles north, Emmetsburg Municipal Airport – 22 miles east, Estherville Municipal Airport – 25 miles northeast, Sibley Municipal Airport – 45 miles northwest, and Sheldon Municipal Airport – 35 miles west. The closest airport offering commercial air service would be the Fort Dodge Regional Airport or the Sioux Getaway Airport in Sioux City, Iowa. The nearest airport offering international air service can be found at the Sioux Falls, SD airport or the Des Moines International Airport.

RURAL WATER SYSTEMS – Iowa Lakes Regional Water Inadequate water supply, in terms of both quality and quantity, had been a major problem for rural residents of Clay County for many years. Within Clay County today, Iowa Lakes Regional Water is the rural water service provider for all of Clay County. Formed in 1977 under its original name and known for years as the Clay County Rural Water District, the company has expanded over the years and is now called Iowa Lakes Regional Water. Although still headquartered in Clay County, Iowa Lakes Regional Water provides a water supply to residents in Clay and Dickinson Counties, and portions of Emmet, Palo Alto, Buena Vista, and O’Brien counties, and Jackson County, MN. This rural water company was originally started to assist rural homeowners by providing quality water in an area of the state where it is difficult to find good water sources through traditional wells. Iowa

85 Clay County, Iowa 2010 Comprehensive Plan

Lakes Regional Water’s mission statement remains today as: “To serve as a regional utility organization and to provide the appropriate services reasonably necessary for the public health, economic development, convenience and comfort of its members.”

In addition to the thousands of individual rural water connections serviced by Iowa Lakes Regional Water, the rural water company is also the water supplier for many communities in Clay County including Fostoria, Dickens, Webb, Gillett Grove, Greenville, and Rossie. Iowa Lakes Regional Water also services the needs of the consumers in the unincorporated towns of Langdon and Cornell. With the continued growth and expansion of rural water systems, this has opened the Figure 44 - Iowa Lakes Regional Water Service Territory Map door for rural economic development in terms of offering a basic yet essential service for businesses, industries, agricultural operation, and single family residences.

In providing services for its Clay County clients, Iowa Lakes primary well field and water treatment plant is located approximately 7 miles northwest of Spencer from which the raw water is collected from the aquifers below Clay County , treated and then shipped to thousands of users throughout all of Clay County and adjoining counties.

To the right is Iowa Lakes Regional Water’s service territory map. Depicted on the map shaded in blue is Clay County which sits entirely within the regional water’s service territory. Identified within Clay County is Iowa Lakes Regional Waters office building located in the Spencer Industrial Park along with the location of the primary water treatment plant and well fields located in northwest Clay County. The boundary of the entire service area, encompassing portions of six (6) counties appears as the blue line on the map.

86 Clay County, Iowa 2010 Comprehensive Plan

CLAY COUNTY DRAINAGE DISTRICTS With advancements in farming practices, it didn’t take long to successfully implement the man made manipulation of the land to assist in drainage of naturally low areas and soils conducive to retaining water. Drainage districts have been created in Clay County to assist in the collection of excess storm water, both from surface runoff and groundwater sources. The excess stormwater and groundwater collected are then diverted into nearby creeks, streams and other tributaries which eventually collect into the Ocheyedan and Little Sioux River basins. As seen on the map below, there are 103 drainage districts in Clay County. This figure includes joint drainage districts with other counties and also includes a few sub-districts within other districts.

Figure 45 - Drainage District Map of Clay County

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Chapter 11. COUNTY SERVICES

The Clay County Courthouse and Administration Building is open Monday through Friday from 8:00 a.m. to 4:30 p.m. There are many county services, departments, and programs operated from within the courthouse and administration building. Below is a listing of Clay County services and contact information for these county departments or programs:  Board of Supervisors, Administration Building, 712/ 262-1569  Auditor, Marjorie Pitts, Administration Building, 712/ 262-1569  Assessor, John Lawson, Administration Building, 712/ 262-1986  County Attorney, Michael Houchins, 2000 Hwy Boulevard, Spencer 712/ 262-8641  Conservation Office, Dan Heissel, 420 10th Avenue SE, Spencer, 712/ 262-2187  Community Services, Kim Wilson, Clay County Courthouse, 712/ 262-9438  Emergency Management, Eric Tigges, Administration Building, 712/ 264-3987  Emergency Medical Services, Tammy McKeever, Administration Building, 712/ 262-8165  Engineer, Scott Reinhart, Administration Building, 712/ 262-2825  Environmental Health, Tammy McKeever, Administration Building, 712/ 262-8165  GIS Coordinator, Theresa Wurth, Administration Building, 712/ 264-3902  Information Technology, Theresa Wurth, Administration Building, 712/ 264-3902  Public/Community Health, Spencer Hospital, 1200 First Avenue E., Spencer, 712/ 264-6380  Recorder, Shirley Goyette, Administration Building, 712/ 262-1081  Sheriff, Randy Krukow, Sheriff’s Office, 3121 W. 4th Street, Spencer, 712/ 262-3221  Treasurer, Sandra Geidl, Administration Building, 712/ 262-2179  Veterans Affairs, Joan Waller, Administration Building, 712/ 262-5547  Weed Commissioner, Marc Gustafson, 712/ 295-5557  Zoning, Tammy McKeever, Administration, 712/ 262-8165

Photo of Clay County Courthouse and Administration Building

Image Courtesy of: http://www.co.clay.ia.us/index.html

Zoning & Subdivision Review The county has established and enforces zoning regulations for the unincorporated portions of Clay County. Permits are required for all non-agricultural buildings, decks, fences, accessory buildings, wells, on-site septic systems, variances and Iowa statewide electrical permits. The county’s zoning department also enforces the subdivision ordinance which deals with the division of land for purpose of sale or development. The Planning and Zoning Commission participates in review of building permits, zoning changes and subdivision reviews. The county’s Zoning Board of Adjustment participates in review of variance and special exception requests.

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FIRE PROTECTION SERVICES Clay County Townships are serviced by several volunteer fire departments. Listed below are fire departments located in Clay County, and the rural townships served by these departments. Spencer Fire Department The community has one fire station in operation with 5 full-time fireman and 31 volunteer fire fighters. Their Fire Department’s services include: o Fire Protection/Fire Prevention o Pumper Trucks –2 o Extrication unit (Jaws of life) o Pumper/ladder Truck –1 o Heavy Rescue o Grass Rig – 1 o Air bag lifts o Light Rescue Truck – 1 o Generators o Equipment Van - 1 o Breathing Air Compressor System Hazardous materials response is currently at an operational Photo of firefighters in action level. The operational level includes the ability to act defensively to contain the material, and the technical level of service ensures that individuals understand how to act aggressively to stop contamination from continuing. o 36 fire fighters trained at the Awareness/Operations level. o 36 fire fighters trained at the Fire Fighter One level. o 6 fire fighters trained at the Fire Fighter Two level. o 30 fire fighters trained at Incident Command level. o 10 volunteer Emergency Medical Technician (EMTB) o 2 first responders

Fostoria Fire & Rescue Currently, the Fostoria Fire Department includes one (1) station with 23 volunteer fire fighters, of which includes 7 EMTs and 2 First Responders. Their area of service includes all of Summit and Meadow Townships and the northern portion of Riverton Township. Listed below are the services and equipment provided by the department. o Fire Protection/Fire Prevention o City Pumper & Township Pumper o Equipment Van o Tanker Truck o Light Rescue o Ambulance Everly Fire Department Everly has one (1) fire station in operation with 20 Photo of grass/wildfire volunteer fire fighters. The Department’s Officers consist of a Chief, Asst. Chief, Secretary/Treasurer, Medical Officer and Training Officer. Their area of service includes all of Waterford and Lone Tree Townships. Listed below are the services and equipment provided by the department. o Fire Protection/Fire Prevention o Generators o Extraction Unit (Jaws of life) o Pumper o Tanker Truck o Rescue Truck

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Dickens Fire Department The City of Dickens is serviced by a municipal volunteer fire department. The community has one (1) fire station in operation with ten (17) volunteer fire fighters. Their Fire Department’s services include: o Fire Protection/Fire Prevention o Extraction unit (Jaws of life) -1 o Pumper Truck - 1 o Tanker Truck – 1 o Rescue Truck – 1 Hazardous materials response is currently at an operational service level. o 11 volunteer fire fighters trained at the HazMat Awareness/Operations level. o 17 volunteer fire fighters trained at the Fire Fighter One level. o 15 volunteer fire fighters trained at the Fire Fighter Two level. o 10 volunteer fire fighters trained at the Incident Command level. o 6 volunteer Emergency Medical Technician (EMTB)

Royal Fire Department The City of Royal currently has one (1) fire station in operation with 25 volunteer fire fighters. Their area of service includes all of the following Townships: Clay, Lincoln, and part of Riverton. Their Fire Department’s services include: o Fire Protection/Fire Prevention o Extraction unit (Jaws of life) o 1 Grass Fire Truck Hazardous Materials is currently at an operational service level. o 11 volunteer fire fighters trained at the Operational level. o The rescue division has 6 volunteers trained at the Awareness level. o 9 volunteer fire fighters trained at the Fire Fighter One Level.

Webb Fire Department Currently this community has one (1) fire station in operation with 18 volunteer fire fighters. Their area of service covers all of Garfield Township and much of Herdland and Logan Townships. Their Fire Department’s services include: o Fire Protection/Fire Prevention o Extraction unit (Jaws of life) o Thermal Imaging Camera (infra-red) o 2 Pumpers o 2 tankers o Quick Attack/Grass Fire Truck o Gas meter Hazardous Materials response is currently at an operational service level. o 15 volunteer fire fighters trained at the Operational level. o 12 volunteer fire fighters trained at the Fire Fighter One or Two Level.

Peterson Fire Department The City of Peterson is serviced by a municipal volunteer fire department. The community has one (1) fire station in operation with ten (21) volunteer fire fighters. Their Fire Department’s services include:

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o Fire Protection/Fire Prevention o Extraction unit (Jaws of life) o Generators o Pumper & Tanker Truck(s) – (1 of Each) o Rescue Truck(s) –( 1) Hazardous materials response is currently at an operational service level.

The three (3) remaining incorporated cities in Clay County including Gillett Grove, Greenville and Rossie all have less than 85 residents. These three cities each have opted to sign mutual agreements for fire protection services with larger neighboring communities, similar to contracted or mutual fire protection for the two unincorporated towns of Langdon and Cornell, as well as the Lost Island Lake residential lakeshore developments. Rural residents are also provided with fire protection services from the above mentioned fire departments. Listed below is a Clay County Fire Districts map prepared by the county’s GIS Department which shows the rural service areas of the fire departments in Clay County.

Figure 46 - 2009 Clay County Fire Districts Map

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LAW ENFORCEMENT The Clay County Sheriff's Department is responsible for enforcing the laws of the State of Iowa and the ordinances of Clay County. Currently, the Sherriff’s Office employs 11 full-time employees, including the Sherriff, a Chief Deputy, 6 Deputies, a Civil Deputy, and 2 administrative personnel. Aside from patrolling the unincorporated rural areas of the county, the Sheriff's Office also contracts for police protection with the cities of Fostoria, Dickens, Gillett Grove, Webb, Greenville, Rossie, Peterson, Royal, and Everly. The Sherriff’s Office is responsible for protecting and serving more than 570 square miles and approximately 6,000 residents of Clay County.

Clay County Sherriff’s Office Mission Statement: “Protection and Service of Our Citizens in a Professional and Compassionate Manner and the efficient and correct delivery of Law Enforcement services to the community.”

The Clay County Sherriff’s Department is comprised of four (4) primary divisions consisting of Investigations, Narcotics, Civil and the Jail. Below is a brief description of each of these divisions.

Photo of Clay County Sherriff’s Office Investigations Division The investigations division of the Clay County Sherriff’s Office works closely with the Crime Stoppers program. The local Crime Stoppers program is a nonprofit corporation involving three groups: private citizens, law enforcement agents, and the media.

Narcotics Division The Clay County Sherriff’s Office works strenuously and continuously to ensure the county’s residents are protected against the effects from the results and remnants of a growing local methamphetamine problem with homemade meth labs. In fact, according to the Sherriff Office’s website, in the year 2000 alone, Clay County experienced a 5,000% increase in meth lab dump sites and over $50,000 in over-time and clean up costs.

Civil Division The Civil Division of the Clay County Sherriff’s Office is responsible for the serving of several types of legal documents and official notices. Examples of the types of papers served by the Civil Division include original notices (a legal notice of information, advice, or written warning), bad check notices, general executions (a writ commanding an officer to satisfy a judgment out of any personal property of a defendant), garnishments, injunctions, temporary injunctions, orders or mandates, restraining orders, temporary retraining orders, show cause order, real estate sales execution, subpoenas, summons, citations, and writ of replevin (an action whereby the owner or person entitled to repossession of goods may recover such goods).

92 Clay County, Iowa 2010 Comprehensive Plan

Jail Division The Clay County Jail is located at 409 1st Avenue W. in the City of Spencer and is staffed by 7 full time Jailers, 1 part time Jailer and 1 part time Transport Officer. The mission of the Clay County Jail Division is to “Provide service to the community by insuring the safe and secure incarceration of persons taken into confinement by order of a qualified court or otherwise allowed by law.” According to the Sherriff’s Office website: http://claycountysheriffsoffice.com, confinement will be humane and constitutional as mandated by the United States Constitution, Federal and State Statutes. Professionally trained personnel staff the jail 24 hours a day, seven days a week and every effort will be made to meet both the physical and mental needs of all inmates.

EMERGENCY MANAGEMENT Emergency management is a coordinated effort, involving local, state, and federal government agencies as well as volunteer organizations and businesses. Within an integrated emergency management framework, these entities assist citizens and their communities to prepare for, respond to, recover from, and eliminate or reduce the effects of natural, man-made, civil, and technological emergencies and disasters. As prescribed by Iowa Code, The Clay County Office of Emergency Management is overseen by a commission comprised of the mayor of each community in the county as well as the Sheriff and a representative of the Board of Supervisors. A coordinator is appointed by the commission to oversee the day-to-day activities of the office. The Clay County Emergency Management Office is located in the lower level of the County Administration Building in Spencer.

Photo of Emergency Management Response Vehicles

Photo Courtesy of: http://www.co.clay.ia.us/

The mission of the Clay County Emergency Management Agency is: To Prepare To Respond To Recover To Mitigate This mission remains vital to the core services to the local communities and all residents of Clay County by helping them and all that may negatively affect them. Clay County Emergency Management staff is involved with all responders in the county and also assists in training, creating hazard mitigation and emergency response plans, and responding to incidents. Clay County Emergency Management is also taking an active role in promoting a regional response network.

93 Clay County, Iowa 2010 Comprehensive Plan

LANDFILL/SOLID WASTE SERVICES There is no currently operating landfill or other such permanent site of solid waste disposal located within Clay County. Landfill services for all of the cities and rural portions of Clay County are provided by two regional landfills, the Northwest Iowa Area Solid Waste Agency and the Northern Plains Regional Landfill.

The Northwest Iowa Area Solid Waste Agency was formed in 1972 and is located at 4540 360th Street or 3 miles south of Sheldon on Highway 60, then 1/2 mile west on 360th St. in Sioux County. The solid waste from some of the cities and rural areas in western Clay County is transported to the Northwest Iowa Solid Waste agency.

The Northern Plains Regional Landfill is located just north of the City of Graettinger in neighboring Palo Alto County to the east. The Northern Plains Regional Landfill was purchased by the City of Spencer in 2001, which was formerly the privately operated Flannigan Landfill. Currently, the City of Spencer hauls its estimated 12,000 tons of solid waste each year to the Northern Plains Regional Landfill along with other portions of western Clay County and much of Emmet, Palo Alto and Pocahontas Counties.

COUNTY UTILITIES & SERVICES There are many public and private companies providing varying utility services to both the cities and rural areas of Clay County. Below is a general summary listing to provide an overview of those companies which provide Clay County residents with electricity, natural gas, telecommunications (including telephone, cable and internet providers) and cellular services Electrical providers o Spencer Municipal Utilities (Spencer) o Iowa Lakes Electric Cooperative (Spencer, rural Clay County) o Alliant Energy (Fostoria, Dickens, Gillett Grove, Greenville, Webb, Peterson, Rossie, Royal, Everly, rural Clay County) Natural Gas providers o Black Hills Energy (Spencer, Fostoria, Dickens, Royal) o Ruthven Coop Oil Company (Gillett Grove) o Alliant Energy (Peterson) o Everly Municipal Utilities (Everly) Telecommunications (including telephone, cable and internet providers) o Spencer Municipal Utilities Communications (Spencer, Greenville) o Mediacom (Spencer, Fostoria) o Northwest Communications (Fostoria) o Qwest (Fostoria, Rossie) o Webb-Dickens Telephone Corp. (Dickens) o Ayrshire Farmers Mutual Telephone Co. (Gillett Grove) o Evertek (Greenville, Webb, Peterson, Royal, Everly) o Iowa Telecom (Peterson) o Royal Telephone Company (Royal)

94 Clay County, Iowa 2010 Comprehensive Plan

Cellular Service Many local, regional and nationwide cellular phone companies offer service within both the cities and rural areas of Clay County including: o US Cellular o Verizon Wireless o Long Lines Wireless o Evertek o Spencer Municipal Utilities

HEALTH CARE FACILITIES & SENIOR CARE Hospitals, healthcare facilities and long term care facilities remain an important aspect of the community facilities offered within the Clay County communities. Given the statistics presented earlier in this plan regarding the continued aging demographics and continuing out-migration of Spencer’s younger residents, the provisions of healthcare and long term senior care will prove to be a valuable asset to the county’s residents. Appropriate considerations should be considered and provided in support of needed healthcare and senior care in the future. With that stated, there is only one hospital facility operating in Clay County. It happens to be the Spencer Municipal Hospital, which is also the largest hospital within a 12-15 county region across northwest Iowa.

Spencer Municipal Hospital

The 500 plus employees of Spencer Hospital Photo of the Spencer Hospital are dedicated to providing the highest quality healthcare to residents of Spencer and Clay County. Spencer Hospital continues to grow to serve the complete healthcare needs of Spencer and the surrounding communities. As state on the hospitals website at www.spencerhospital.org/, Spencer Hospital is “Dedicated to providing the citizens of our region with high-tech, professional and compassionate care close to home.” From pediatrics to geriatrics, routine check-ups to emergency care, the Spencer Hospital is well-equipped with the most advanced, up- to-date technology and the best professionals Photo courtesy of: http://www.spencerhospital.org/ suited to meet the patients’ healthcare needs. Spencer Hospital’s services blends state-of- Spencer Hospital the-art technology with the high trained skills Care You Trust. From People You Know of its professional staff to meet the needs of its patients. Services provided at Spencer Hospital range from emergency care, cardiac rehabilitation, surgery, internal medicine, nursing care, to education, wellness, diagnostic services, counseling, and therapy.

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Additional Healthcare Facilities in Spencer/Clay County In addition to the services provided by Spencer Hospital, there are many other healthcare facilities and services offered to the residents of Clay County. . The Abben Cancer Center adjoins the Spencer Hospital and provides complete cancer treatment and care including radiation, chemotherapy and support services.

. The Warner Dialysis Center in Spencer offers dialysis, kidney and urinary tract services 6 days a week. Patients attending the Dialysis Center receive regular consultations from the nephrologist, nursing staff and nutritionists. . Avera Spencer Family Care is a medical clinic associated with the Avera network of healthcare facilities and is located in Spencer. The Spencer Family Care clinic is providing state-of- the-art healthcare services to people within Clay County and throughout the region. Services provided within the Spencer Family Care include pediatrics, obstetrics and gynecology, internal medicine, orthopedics, surgery, geriatrics and psychiatry. Spencer Family Care also provides its patients with diagnostic x-ray, general radiology, and clinical laboratory services and can process most tests during the patient’s examination or treatment. . Northwest Iowa Mental Health Center . Compass Pointe (formerly NW Iowa Alcoholism & Drug Treatment Unit) . Hospice of Northwest Iowa . Spencer Psychiatry . Midwest Hearing Clinic . Hands on Health . Iowa Vocational Rehabilitation Services . Friends of the Mentally Ill of Northwest Iowa

Senior Care/Long Term Care Facilities Aside from the hospital and healthcare facilities identified above, there are numerous long term care or senior care facilities located in Clay County which provide a number of needed healthcare and residential care services for county residents. With a continuing aging population in Clay County, as well as throughout the entire State of Iowa, facilities such as the ones identified below will continue to play an important role in providing a sound quality of life and adequate healthcare services for senior residents. 1. St. Luke Lutheran Home – Spencer 2. Longhouse-Northshire – Spencer 3. Bee Hive Homes - Spencer 4. Riverview Terrace Assisted Living – Spencer 5. Hillside Terrace Assisted Living - Spencer

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EDUCATION Within Clay County, there are (3) primary public school districts along with portions of seven (7) additional school districts that have their boundaries within Clay County. The three primary school district of Clay County include the Spencer Community School District, the Clay Central- Everly School District in western Clay County and South Clay in the southeastern quadrant of the county. The Clay Central-Everly School District encompasses the largest land mass in Clay County and includes the cities of Everly, Royal, Rossie and Greenville. The South Clay School District, situated in the southeast part of the county encompasses the cities of Dickens, Gillett Grove and Webb. The Spencer Community School District is confined to the City of Spencer and adjoining rural areas.

Figure 47 - Clay County School Districts Map Okoboji

Terril

Spencer Ruthven- Ayrshire

Clay Central-Everly

South Clay

South O’Brien

Sioux Central

It should be noted that due to declining enrollment, the South Clay School Board decided to dissolve the school district in 2009. The last school year for the district will end in May 2010. Although not reflected on the above map, the State of Iowa has approved the redistricting of the South Clay School District. Portions of land in the South Clay district will be divided into the Spencer, Clay Central-Everly, Ruthven-Ayrshire and Sioux Central school districts.

97 Clay County, Iowa 2010 Comprehensive Plan

The other community school districts which encroach into Clay County include the South O’Brien School District which covers a large portion of southwestern Clay County and the City of Peterson. The Okoboji School District covers a small area of land in north central Clay County which also includes the City of Fostoria. The Terril School District covers la large tract of land in the northeast corner of Clay County. The Ruthven-Ayrshire School District encompasses some land in west central Clay County and includes the residential properties around Lost Island Lake. The Sioux Central School District includes a large tract of land in south central Clay County within the vicinity of the Highway 71 and 10 intersection. Below is a map prepared by the Clay County GIS Department identifying the county’s existing school districts.

Education is a top priority for the residents of Clay County. Students attending either public or private schools in Clay County are sure to find a high quality educational environment in which to learn. Aside from the five public school districts in Clay County, there are a number of private schools from which residents have the ability to choose. In addition to fine academics taught within Clay County public and private schools, these education centers promote and encourage the fine arts, performing arts programs, as well as a variety of traditional athletic programs to stimulate all aspects of a student’s education. Following is a listing of all Clay County schools: . Iowa Great Lakes Lutheran School (Private K-6, Spencer) . Sacred Heart Catholic School (Private K-6, Spencer) . Clay Central Everly (High School, north site in Everly) . Clay Central Everly (Elementary/Middle School, south site in Royal) . South Clay School (K-6, Gillett Grove) . Spencer Community Schools (3 Elementary, Middle School & High School) . West Alternative High School (Spencer)

School enrollment figures for public schools in Clay County over the past six years, as well as projected enrollment figures for the next five years are identified below.

Table 33 - Clay County Public School Enrollment by Year and Projected Enrollment School Year Enrollment Year Enrollment Spencer 2004-05 2,022 Projected enrollment 2009-10 1,938 2005-06 2,005 2010-11 1,947 2006-07 2,006 2006-07 1,964 2007-08 1,981 2007-08 1,952 2008-09 1,943 2008-09 1,962 Clay Central-Everly 2004-05 433 Projected enrollment 2009-10 357 2005-06 415 2010-11 346 2006-07 400 2011-12 336 2007-08 385 2012-13 330 2008-09 369 2013-14 335 South Clay/ 2004-05 315 Projected Enrollment 2009-10 282 Ruthven-Ayrshire 2005-06 298 2010-11 272 2006-07 311 2011-12 266 2007-08 300 2012-13 267 2008-09 283 2013-14 266

Source: Iowa Department of Education, 2009 98 Clay County, Iowa 2010 Comprehensive Plan

A brief analysis shows that enrollment for all three of the school districts reported on the previous page are showing a declining number of students. Both the current trends and projected enrollment should be an alarming statistic for Clay County leaders, as well as those residing within the communities where these schools are located. The continued decline in school enrollment shows a continued decline in the under age 18 population demographic. This will have a significant impact when trying to plan for future service and land uses in Clay County. Furthermore, and even more alarming, is the reduction in student enrollment may be a sign or more significant issues, such as employment for the parents of these students that are leaving Clay County. The Spencer Community schools reported a decline of 79 students between 2004 and 2009. This results in a loss of 3.9% of the student body. Maybe its just coincidence, but the projected population loss for Spencer from 2000-2008 is also -3.9%. On a bright note, the Spencer School District is projected to moderate its losses and even regain some of its student body by 2014. Similarly, the Clay Central-Everly School District is also showing losses in student enrollment, but at an even faster pace than Spencer. From 2004 to 2009, Clay Central- Everly dropped in student enrollment from 433 to 369, a loss of 64 students or -14.8%. Finally, the numbers for the South Clay School District also reports a declining enrollment. However, the South Clay enrollment numbers are included in with the Ruthven-Ayrshire School District numbers since the two school district whole grade share. In recent years, the K-6 South Clay School District has experienced rapidly declining student numbers. During 2009-2010, the last year for the South Clay School District, the school has less than 50 students for grades K-6.

The declining trends in Clay County’s school enrollments may not be attributed solely to population loss. In reality, there are most likely several variables affecting the current and project school district trends. The population composition of Clay County may be shifting to an older population at a faster pace than realized and therefore translating to fewer persons under the age of 18 in Clay County. Other contributing variables may be increases experienced in private education or home schooling which would also affect the number of students enrolled in public education. Furthermore, with open enrollment in the public school system, there may be some students who reside in Clay County but choose to attend another school district seeking alternatives in athletics, academics, or the fine arts.

Colleges/Universities In addition to the private and public schools in Clay County, the residents of this county are also fortunate to have the local resources of two higher learning institutions in Clay County. Post- secondary educational opportunities include Iowa Lakes Community College-Spencer Campus and Buena Vista University-Lakes and Prairie Center. Both of these high learning centers are located within the City of Spencer

Iowa Lakes Community College - Spencer Campus The Spencer campus is part of the network of the Iowa Lakes Community College. With its main campuses in Emmetsburg and Estherville, Iowa Lakes Community College actually has six campuses. The Spencer campus houses day, evening and weekend college courses, and has two recently construction apartment style dormitories for those students who desire to live on campus. Fields of study and programs offered at the Spencer

99 Clay County, Iowa 2010 Comprehensive Plan campus include Health Care Administration, Message Therapy, Medical Assistance/Chiropractic Assistant, Medical Office Technology, Pharmacy Technician and Surgical Technology. Iowa Lakes Community College also works in cooperation with Buena Vista University to provide area students with a Bachelor’s Degree.

Buena Vista University – Lakes and Prairies Center BVU’s Lakes and Prairies Centers are located within the Iowa Lakes Community College campuses in Estherville, Emmetsburg, Spirit Lake and Spencer (Clay County). With full access to BVU’s curriculum and educational programs, students in Clay County have access to 18 different majors and four education endorsements in a variety of flexible formats.

Educational Attainment of Clay County Residents According to 2000 U.S. Census Bureau data, of the 17,372 residents in Clay County, 11,692 are over the age of 25. In identifying the educational attainment level of Clay County residents, data sources shows 12 percent, or nearly 1,400 residents have not obtained a high school education. The largest group of educated persons in Clay County is those persons who have obtained their high school education or equivalency. Nearly 37 percent of this demographic group or 4,306 Clay County residents over the age of 25 have obtained their high school education. This group is followed closely by the 3,079 residents (26.3%) who have obtained some college education. Additionally, 1,569 persons (13.4%) are recipients of a Bachelor’s degree and another 334 (2.9%) have earned a graduate or professional degree. College educated individuals in Clay County account for 51.2 percent of the resident population over 25 years of age.

Figure 48 - Educational Attainment of Clay County Residents, 2000

40.00% High School 33.6% 35.00%

d 30.00%

e Some College t a

c 20.3% u

d 25.00% E

s n o

s 20.00% r

e Bachelor's P

f

o 13.4%

15.00% #

< 9th 9-12 Grade Associate 10.00% Graduate 13.1% 6.6% 6.6% 6.4% 5.00%

0.00%

According to 2000 Census data 4,161 residents of Clay County over the age of 3 were enrolled in school. Of the students residing in Clay County, 429 or 10.3% were enrolled in preschool and another 255 or 6.1% attended Kindergarten. The largest group attending school in Clay County are the 1,938 elementary age students (grades 1-8) comprising 46.6% of total enrollment. Another 1,037 students or 24.9% attend High School. And finally, a reported 502 or 12.1% of persons enrolled during 2000 were either attending a college or graduate school.

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CHURCHES Photo of Dickens United Methodist Church The Churches and congregations in Clay County Iowa welcome you and encourage you to attend the Church of your choice. Those religious institutions located within Clay County (as of 2008) and serving the local residents include:

. Dayspring Assembly of God Church 1410 West 18th Street, Spencer . Bethany Lutheran Church . Grace United 15 W. 14th St., Spencer Methodist Church 311 2nd Ave W, . Bethlehem Lutheran Church Photo courtesy of www.co.clay.ia.us/churches 207 Church St., Royal Spencer . Christ the King Lutheran Church . Hope Lutheran Church . The Church of Jesus Christ 500 4th Ave SW, Spencer 206 N. Washington, Everly of Latter Day Saints 1701 West 11th St., Spencer . Church of Christ . Hope Reformed Church 1304 St. Lukes Drive, Spencer 919 N. Grand Ave, Spencer . Trinity Lutheran Church 900 11th Ave W., Spencer . Spencer Family Church . Jehovah's Witnesses 902 5th St. SW, Spencer Kingdom Hall . United Methodist Church 1404 W18th St., Spencer Fostoria . Faith Pentecostal Church 1700 11th Avenue SW, Spencer . Langdon Methodist Church . United Methodist Church Langdon 408 Church St., Royal . First Baptist Church 1200 N. Grand Ave, Spencer . Living Word Church . United Methodist Church 905 10th Ave SE, Spencer 103 E. 3rd St., Peterson . First Baptist Church 101 Church St., Webb . New Life Worship Center . United Methodist Church 1217 4th Ave W, Spencer 301 N. Ocheyedan, Everly . First Christian Church 701 E 18th St., Spencer . Ninth Street Baptist Church . United Methodist Church 301 W. 9th St., Spencer 301 East Street, Dickens . First Congregational Church Peterson . Sacred Heart Catholic Church . United Methodist Church 1111 4th Ave West, Spencer 1692 290th Street, Spencer . First Congregational Church 1212 1st Ave W, Spencer . Saint Louis Catholic Church . Victory Baptist Church 200 1st St., Royal 510 East 8th Street, Spencer . First English Lutheran Church 1311 East 18th St., Spencer . Seventh Day Adventist Church . Wells of Living Grace Church 1910 10th Ave. East, Spencer Highway 18 E., Spencer . Gillett Grove United Methodist 426 Chicago Ave, Gillett Grove . Spencer Church of Christ 1304 Saint Luke Dr., Spencer . Gospel of the Living Word 905 10th Avenue SE, Spencer . Spencer Family Church 902 5th Street SW, Spencer . Grace Congregational Church Greenville, IA 51343

CEMETERIES In addition to the many religious institutions listed above, there are also several cemeteries within Clay County. Following is a complete listing of all cemeteries and the township their located in.

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As identified on the county’s website at: http://www.co.clay.ia.us/, below is a listing and map of all rural cemeteries in Clay County.

Table 34 - Cemeteries in Clay County and their location CEMETARY TOWNSHIP COMMUNITY Bethlehem Lutheran Lincoln Rossie Burr Oak Herdland Sioux Rapids Clay Clay Royal 1st Reform Church (formerly Cromwell Center) Waterford Everly Dickens-Freeman Freeman Dickens Evergreen Summit Fostoria Fanny Fern Douglas Sioux Rapids Fairview-Meadow Meadow Langdon Garfield Garfield Webb Liberty Herdland Greenville LincolnTownship Lincoln Rossie LoganTownship Logan GillettGrove Lone Tree Lone Tree Everly North Lawn Memorial Sioux Spencer Oakland Peterson Peterson Osborn Private Herdland Webb Prairie Creek Lincoln Rossie Welsh Pioneer Douglas Linn Grove Riverside Riverton Spencer RoseHill GillettGrove GillettGrove Sioux Sioux Spencer Swedish Lutheran Lincoln Spencer Tremello Clay Royal Willow Creek Clay Royal ZionMethodist Douglas LinnGrove

Figure 49 - Map of Clay County cemeteries

Map courtesy of Clay County GIS Department

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MUSEUMS AND THE FINE ARTS Photo of Jim’s History Barn in Peterson Throughout Clay County, there a numerous examples of civic uses, including museums and other businesses in support of the fine arts. Following is a brief overview of the many cultural and fine arts amenities to be enjoyed by residents and tourists alike. This information was obtained from the Clay County website, and additional information about each of these interesting locations in Clay County can be accessed through the internet.

Jim’s History Barn – Peterson Located just to the east of Main Street (M-27), this Photo courtesy of http://www.co.clay.ia.us/community.htm traditional large red barn can be found in the small community of Peterson. Jim’s History Barn is a private collection of artifacts from wars, toys, antique tools and Indian artifacts.

Kirchner Park House and Museum (including the Kirchner Log Cabin) Also located within the community of Peterson in southern Clay County, the Kirchner house was the first frame dwelling in Clay County. Within the museum are many exhibits of antique agricultural machines and farm equipment.

Parker Historical Museum of Clay County In addition to a museum dedicated to the history of Clay County, the museum often rotates its many historical collections. The Parker Museum also assists county residents and visitors with genealogical research. Located along 3rd Street in Spencer, the Parker Museum recently acquired a store front along Grand Avenue (Highway 18/71) in Spencer which will provide the museum will much needed additional display space and excellent ability to better promote the museum to the general public.

Royal Historical Museum Formerly known as the Riverton No.8 Fair Play School, this historical structure was built in 1935 and moved to Royal in 1947. It was used as a school classroom for a short time in Royal. Restoration on the structure began in 1999. Now featured within this museum include Royal business memorabilia, veteran’s display and displays of Royal’s Churches.

Arts on Grand As the name would imply, this gallery and art studio is located along Grand Avenue (Highway 18/71) in Spencer. Arts on Grand, founded in 1979, prides itself on having fine art exhibits, a gallery shop, offering art classes, workshops, and hosts performances from several performing art disciplines. Arts on Grand is open to the public Tuesdays through Saturdays.

McGee Gallery and Framing Located on Main Street in Peterson, this gallery specializes in contemporary western and equine art. There are many portraits, landscape and floral art pieces for viewing or purchase.

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CLAY COUNTY FAIR & THE REGIONAL EVENTS CENTER Fondly referred to by locals and fair aficionados as “The Worlds Greatest County Fair”, the Clay County Fair is by far the county’s largest tourism draw, although is only lasts for little more than one week each year. The Clay County fair is a 9 day fun-filled extravaganza held each September that would rival most state fairs. With more than 600 commercial vendors, the state’s largest agricultural display, and major entertainment artists performing at the grandstand, it is clear to see why people complete their Photo courtesy of www.spenceriowachamber.org exodus to the Clay County fair on an annual basis. The significant economic impact from the Clay County Fair is extremely important to all of the businesses in Spencer and Clay County benefiting from the influx of hundreds of thousands of visitors. Clay County has a population of roughly 17,000 residents. In comparison, the 2009 Clay County Fair set a new attendance record with nearly 327,000 attendees over the nine day run. The primary draw for the Clay County Fair is all of Iowa, as well as Minnesota, South Dakota and Nebraska. However, visitors from all 50 states and several foreign countries have visited the Clay County Fair. According the Fair’s website at: www.claycountyfair.com, the following is listing of both interesting and impressive statistics about the Clay County Fair. . 2009 Record Attendance – 326,781 . 400,000 brochures distributed annually . 74% of attendees live in Iowa . 14% are from Minnesota . 4% of visitors are from South Dakota . 4% of visitors are from Nebraska . 86.2% of visitors are from family households . The average attendee visits the fair for 3 days and stays for more than 5½ hours each day.

Clay County Regional Events Center Constructed on the fairgrounds in 2003, the Regional Events Center is a year around multi-use entrainment facility. The Clay County Regional Events Center prides itself on providing outstanding experiences in a small town location. The Regional Events Center has been fortunate to bring major top name entertainment acts such as the Oak Ridge Boys, Kenny Rogers, Sesame Street Live, Nashville Star, Doodle Bops, WWE Wrestling and Ringling Brothers Circus to Clay County and northwest Iowa. The Regional Events Center is equipped with a 7,600 sq.ft. grand ballroom that can seat upward of 500 people and the 24,000 sq.ft. arena/exhibit hall capable of seating more than 2,500 persons during concerts.

Photo courtesy of www.spenceriowachamber.org

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Chapter 12. OVERALL GOALS AND LAND USE OBJECTIVES

Development of a comprehensive plan involving cooperation between diverse interests and various levels of government requires both private and public interests to function with similar land use and development concepts in mind. This plan will establish the framework which will enable all interests to operate effectively. Planning is theoretical in nature. There are many different theories advocated, but the general process remains much the same.

This chapter contains a theoretical framework upon which future land use decisions for Clay County can be based. The goals and objectives for this plan have been developed by the Planning and Zoning Commission and county zoning staff, along with the assistance of the Northwest Iowa Planning & Development Commission. These goals, objectives and land use policies all have been developed to reflect the desires and intent of the county toward future land use development. Additional chapters in this plan will provide an overview of existing conditions in the county that will provide the background and supporting data of the goals and objectives.

There are several items the Board of Supervisors and the Planning and Zoning Commission need to remember in order to make this a successful comprehensive plan. The first and foremost is that all participants must realize there is a large commitment and effort required to make the planning process successful. The commitment of the Planning and Zoning Commission to work with county leaders to guide the implementation of this plan and other development issues is essential. This plan is not a “quick fix” to any agricultural, residential, economic or other development challenges that Clay County may face; however this plan can serve as a guide to future development opportunities. A comprehensive land use plan needs to be modified and updated over time in order to maintain current plan and control ordinances.

CLAY COUNTY COMPREHENSIVE PLAN GOALS 1. Clay County should strive to preserve and protect prime agricultural lands while continuing to separate the distinct urban and rural characteristics of the county. 2. Clay County should consider and finds ways to mitigate or lessen the impact of development on neighboring properties when making future land use decisions. 3. Clay County should achieve a progressive balance between promoting development to facilitate the economic development potential of the county, and respecting the rights and responsibilities to preserve prime agricultural lands and natural resources. 4. Clay County should take measures to preserve, protect and enhance the irreplaceable natural resources of the county, both recreational and pristine. 5. Clay County should facilitate the provision of necessary and required county services to its residents, businesses and industries in a reasonable, efficient and fiscally responsible manner. 6. Clay County must recognize the importance of securing new and expanding businesses, including but not limited to those businesses promoting the use of renewable resources and alternative energy in an effort in attract, create and retain good paying jobs for the county’s residents.

105 Clay County, Iowa 2010 Comprehensive Plan

7. Clay County should welcome new residents to locate within the county through encouraging or facilitating new and expanding residential development, in addition to those economic or financial assistance programs which may entice new developments. 8. Clay County has already established an environment and economy which promotes agricultural and animal husbandry. The County should continue to promote these key economic interests, but also expand its economic development efforts to include new, innovative, renewable resource, and green industries. 9. Clay County should continue to maintain a transportation and infrastructure system that provides for the safe, convenient and economical movement of people and goods in and out of the county.

The above listed term goals are the most significant element underlying the comprehensive development plan. The land use objectives and the policy recommendations formulated in this plan are intended to achieve these overall goals.

GENERAL LAND USE OBJECTIVES/TRENDS Physical Setting: Clay County is characterized by three (3) distinct and contrasting elements that each deserves individual consideration and attention when planning future land use project. These three primarily land use elements include; 1. One (1) small urban city, nine (9) additional incorporated cities and two (2) rural towns 2. Unique natural amenities in the forms of prairie wetlands, river systems and natural lakes. 3. Vast areas of prime agricultural lands. The developed urban centers have distinctly contrasting needs and impacts upon the land versus the prairie lakes and prime agricultural areas. Thus, land use considerations should be based upon these three separate and distinct environments, when considering future projects.

Prime Agricultural Lands: Clay County’s topsoil is its finest and richest resource. Unfortunately, it is limited and non-renewable. This natural resource must be protected, especially the control of soil erosion, soil manipulation, and soil contamination which can influence the depletion of this resource and lead to polluting local and regional water resources. However, existing agricultural lands and non-productive lands may be considered for development if they are adjacent to existing communities or built urban areas for the sake of continuity and economic advancement of the county. In most instances, non-agricultural development on prime agricultural lands should generally not occur unless the land has a CSR of less than 65. If the soil has a CSR of more than 65, the county zoning staff shall consider other mitigating factors in making the determination of whether the land has prime agricultural soils and is suitable or not suitable for development.

Natural Resource/Environmental Areas: Natural resources and environmentally sensitive areas such as lakes and their watersheds, marshes, potholes, river flood plains, sloughs, historic sites, and areas of excessive slope require special consideration in order to protect them. Development should be scrutinized prior to being permitted, and any development adjacent to these features must be compatible in nature with such natural resource areas.

106 Clay County, Iowa 2010 Comprehensive Plan

Parks & Recreation: Recreation and park areas improve the quality of life for all those who have access to and use them. The addition of new recreational areas should be considered, but also examined to determine what affects new places will have upon local residents, environment, and social structure of the county. Existing park and recreation areas should be protected from development adjacent to such areas so future growth of the areas can occur without the right of public access being compromised.

Residential Development: Provisions for residential development must be allowed and maintained if the county is to grow. The county should be careful to consider the needs and services required by future housing developments. Residential expansion must be allowed to occur upon varied locations and situations, but expansion of this land use must be controlled to ensure safe, adequate and affordable housing opportunities for all county residents.

Commercial Development: Commercial development should be located adjacent to major arterials where services and products are made readily available to the public. Such areas should be near existing commercial sites and in areas established or designated for commercial expansion. Commercial activity of a “home occupation” nature should be allowed in both agricultural and residential zoning districts as long as zoning conditions are met.

Industrial Development: The economic base of a county is strengthened and expanded by the variety of industries with which it contains. Expansion of industrial land uses should occur within existing corporate limits or in planned industrial areas where necessary services and utilities can be provided with a minimum of expense and maximum efficiency. Hazardous materials uses (i.e. farm or agricultural chemicals) along with those industries promoting renewable energies or alternative fuels should be considered with careful review and consideration to locate in agricultural areas where zoning protection can be implemented to keep residential uses at a safe distance. All industrial development should be reviewed in regards to its impact upon the surrounding environment.

Transportation/Infrastructure: Improvements to the county’s transportation and infrastructure systems is one of the primary components to developing a sound economic base. A good transportation system is a vital link between good and services and the people who need them. In order to provide transportation at the lowest cost, and integrated system of roadways, railways and airways should be planned for, developed and maintained.

Utilities: Necessary services, such as fire protection, water, sewer, electricity, natural gas, propane, or petroleum not only improves the quality of life for residents, but also protects the ground water supply from unnecessary pollution. Because of the cost of providing such services, uses should be encouraged to locate where adequate services are present. If existing utilities are not available, private systems should be carefully reviewed in regards to their impact upon the environment prior to approval of county officials.

Economic Development: In a time of high unemployment and few business start-ups, Clay County must encourage, seek and secure new opportunities for economic development of the County. The loss in population may directly and indirectly be related to the loss of employment

107 Clay County, Iowa 2010 Comprehensive Plan opportunities in Clay County. Seeking new, innovative and creative solutions to promoting and realizing positive economic development in Clay County must occur over the next decade.

County Development: Overall development of the county must not become stagnant. A pattern of county development that maintains the visual and functional distinction between urban and rural areas should be sought. At a minimum, existing businesses and housing should be maintained and encouraged to expand. Future urban development should be encouraged in the form of compact, contiguous growth around the existing cities and towns of the county. Additionally, scattered developments of non-farm uses in the agricultural areas of the county should be discouraged.

City Development: City growth in Clay County must be also encouraged in order to strengthen the overall economic vitality of the county. With that said, Clay County will encourage cities’ growth trends toward infill development within existing city limits. The county must carefully review future annexation proposals of unincorporated areas in Clay County. Growth within the cities makes the most efficient use of available capital resources and community facilities.

Government Role: Decisions of government bodies will affect the choices with which property owners consider concerning the use of their property. The role of government in land use issues should be sufficient to protect the rights of both property owners and interested third parties, with considerations for more intergovernmental coordination so consistency of county policies is maintained and duplication of efforts is avoided.

Land Use Mixing: Zoning practices should allow for a separation of land use types in order to give all uses protection from incompatible types. Some degree of mixing may be acceptable and even encouraged in instances where multiple land uses are beneficial for the overall development and the properties it affects.

Planning and Implementation: Citizen input is vital within the planning process. Local residents can aid local planning boards with policy development and implementation by providing insights into specific areas of their expertise. When a wide range of ideas from residents are included in the plan, implementation of the decisions made should be much easier. Therefore, every effort should be made to implement the ideas contained within this plan, and continued public input and citizen recommendations should be heard and considered by the county.

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Chapter 13. LAND USE PLAN & POLICY RECOMMENDATIONS

Clay County continues to be characterized by three (3) distinct land use patterns: (1) concentrated urban growth around the fringe of a small urban city along with nine other incorporated cities; (2) the sensitive natural resources of the lakes and wetlands of northeastern Clay County and river corridors, and (3) the vast rural agricultural areas elsewhere in the county. From 2000 to 2008, land usage patterns in both areas grew more pronounced. Interestingly, the urban development was built up further with more farmland taken out of production for residential, commercial and industrial uses when the county’s overall population during this same timeframe has decreased slightly. In the rural portions of the county the agricultural trends continue to hasten the movement toward larger farm corporations and fewer family farmsteads.

Land use policies deal with specific issues or problem areas and delineate a course of action which can prevent or correct any future mistakes. Policies are directly related to the overall goals and objectives, but are specific in that they deal with particular land use types. Policies are meant to be an aid in assisting governing bodies in revising land uses decisions in the form of sound and intelligent decisions. The land use configuration of Clay County identifies and reflects the personality of the county. The use of the land is related to factors including past trends, socioeconomic characteristics, soil suitability, topography, availability of utilities, transportation and the local nature and beliefs of its residents. Once this information has been gathered, analyzed and quantified, it can be linked with future land use goals and objectives and the suitability of future growth areas to facilitate the evolution of a realistic, attainable and viable land use plan.

This study of planning in Clay County will include an analysis of several different land uses found within the county’s jurisdiction. Land use considerations are probably the most important aspect of comprehensive planning, as far as shaping the future growth and development of the county. The land uses of natural resource/environmentally sensitive areas, agricultural, residential, commercial, industrial, transportation and public/semi-public land uses are the major parts of the future land use plan.

LAND USE DEFINITIONS

According to “The New Illustrated “A Comprehensive, long range plan intended to guide the Book of Development Definitions” growth and development of a community or region a “Comprehensive Plan” or “Master (county) that typically includes an inventory and analytic Plan” is defined to the right. On the sections leading to recommendations for future economic following page is a listing of development, housing, recreation and open space, additional land use terms commonly transportation, community facilities, and land use, all used by planning boards and staff. related to the goals and objectives for these elements.”

Agricultural Land Use - Land in the county being utilized for crop production, the raising and/or production of livestock, and/or other agricultural-based commodities.

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Rural Residential & Residential structures, typically single family housing units, Unincorporated Towns - located in unincorporated subdivisions, acreages or farmsteads.

Single Family Structures occupied for dwelling purposes by a single-family living Residential Land Use - in one dwelling unit.

Commercial Land Use - Structures and/or land used primarily for services, trade, and commerce such as retail, entertainment, food, and other businesses providing the sale of goods, products, and services; excluding wholesale and manufacturing.

Industrial Land Use - Structures and/or land used primarily for the manufacturing, packaging warehousing, or distribution of natural or man-made products.

Public/Civic Land Use - Structures and/or land available for use by the general public for non-commercial purposes such as schools, churches, cemeteries, fraternal or social clubs, and government buildings.

Parks & Recreation - Public and/or private areas devoted to active or passive recreation Land Use activities

Natural Resource/ Those public and/or private areas devoted to the protection, Environmental Land Use - preservation, sustainability of the natural resources and native land uses of the county.

Growth Management - The pacing of the rate or controlling of the location of development via law enactment to manage growth.

Smart Growth - An approach to land-use planning and growth management that recognizes connections between development and quality of life. In developing areas the approach is more compact, pedestrian oriented, and has a greater mix of housing, commercial, and retail uses. Smart-growth approaches preserve open space and other environmental amenities.

Conservation Open space and compact development designed to protect Development - agricultural and/or natural resources while allowing a permitted number of residences under current zoning and subdivision regulations. (Definition courtesy of Urban Land Institute)

Existing Land Use - The current use of a lot or structure at the time of the comprehensive plan study. Future Land Use - The proposed or intended use of properties or areas of land as depicted in the county’s comprehensive land use plan and maps

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Often times, similar definitions or land classifications are used within the County Zoning Ordinance. Zoning classifications should not be confused with the categories listed herein, as these are more general in nature and probable uses of the land are derived only from the appearance of a given land use or property. These categories are meant only to aid in studying the composition of the county’s current and proposed development patterns.

LAND USE CHARACTERISTICS/GROWTH TRENDS Historically, land use developments and growth in Clay County have been built around either existing urban developments or transportation corridors. The one exception to this has been the increasing development occurring around Lost Island Lake along with the potential for future development to occur within this vicinity or even other lakes in Clay County. There is a large commercial/industrial development area that has developed over the years to the west of Spencer to the north of County Highway B-24 and west of the Northwest Iowa Regional Airport. Scattered commercial uses have appeared along both Highways 18 and 71 throughout the county. Rural acreages continue to develop and be built throughout the county. The rural residential subdivisions have been platted and developed within close proximity to existing cities or previously developed areas. Urban sprawl trends should receive significant consideration in regards to the planning of growth, development, and future land uses. Land use control measures should be explored and recommended. The information presented throughout the rest of this chapter should provide a sound basis from which the county’s land use goals, objectives, and policies can be developed.

The exact amount of land to be devoted to each land use category in 2030 is not known and cannot be accurately estimated because of unknown variables; rather, a realistic estimate of land areas will be made relative to the following methodology. First the projected trends and changes or shifts in population from 2010 to 2030 will be examined and analyzed to determine the impact on existing and future planned land uses. Secondly, land use areas or districts will be indicated on the future land use map. It must be kept in mind that the future land use plan is a valuable tool in which development decisions and zoning controls can and should be based.

AGRICULTURAL LAND USE Agricultural uses occur in Clay County where land is used to produce row crops, grazing, pasture, raising or confine livestock, support orchards or farming, or store grain or agricultural products on a small scale. Furthermore, the agricultural land use classification also includes non-farmed lands that are currently vacant and do not maintain an existing use. While the number of farmsteads is diminishing, the average size of the farm along with the number of acres farmed in Clay County is increasing. The continual decline of the farm numbers may be attributed to higher production costs and a competitive market created by larger farms Photo courtesy of www.co.clay.ia.us/ that have a much lower cost of operation and overhead. Although the small farm operation has tried to survive in Clay County, the increasingly agricultural market in the 21st century has made it difficult for smaller farm operations to continue.

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By far, agriculture accounts for the greatest amount of land uses in Clay County, accounting for nearly 290,000 acres. The agricultural economy remains one of the county’s strongest economic resources. The economic impact derived from agricultural products and farming will continue to evolve, but will also continue to have a strong presence for generations to come. Local officials need to consider protection measures of prime agricultural land from future development and unnecessary urban sprawl. Prime agricultural land is one of Clay County’s and Iowa’s greatest single non-renewable resources and as such should receive consideration for preservation. Protection of agricultural areas can help sustain the primary economic activity in the unincorporated areas. Although, traditional agriculture has dominated Clay County’s economic climate for decades, changes in the worldwide market have opened the doors for many new and innovate agricultural related industries. Now is Clay County’s time to make the most of the economic opportunities available related to alternative agricultural industries aside from traditional farming and

Photo courtesy of www.co.clay.ia.us/ the raising of animals.

To further guide considerations of agricultural lands and development related to agricultural uses the following agricultural land use objectives and policy recommendations shall be considered.

Objective 1. Protect and preserve prime agricultural lands within Clay County. Policy 1a. Discourage the creation of new intensive non-agricultural land uses throughout prime agricultural areas of the county. Policy 1b. Direct new non-agricultural developments toward existing “developed” areas, so that the negative impact to prime agricultural soils will be lessened. Policy 1c. Support and maintain the zoning enforcement of preventing non-agricultural uses to build upon prime agricultural zoned lands with a CSR rating of greater than 65. Policy 1d. Since prime agricultural soils are not a renewable resource, encourage all farming and agricultural land uses in Clay County to become “good stewards” of the land and practice environmentally friendly and conservation practices.

Objective 2. Seek new and innovative agricultural or ag-industry related business that would compliment the existing landscape of Clay County while creating an economic stimulus for the county. Policy 2a. Clay County should be welcoming and encourage the development of innovative and “green” renewable energy industries such as the wind generation, solar, geothermal or hydroelectric industries. Policy 2b. Clay County should encourage and seek agricultural based industries such as those related to alternative fuels, animal research or animal pharmaceuticals, with considerations of impact to the adjoining environment and prime agricultural lands.

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RESIDENTIAL LAND USE Residential land use is that which is used primarily for human habitation. For purposes of this plan, this will include both single family and multiple family residential uses; and includes all residential uses from small single family lots to large estate lots or rural residential acreages. There is no identified multi-family housing within rural Clay County. Rural residential development has been slow to steady over the past 10 years with only one major new rural residential subdivision being platted in Clay County. The River Bend Estates was platted in 2007 and offers homeowners the opportunity to build the home of their dreams on one of 27 acreages varying in size from 3.5 to 5 acres. This rural subdivision is situated along the Ocheyedan River just to the west of Spencer western city limits. This residential area offers all the enjoyment of living in the country with many of the city amenities people have come to enjoy. Clay County continues to encourage and promote rural residential development for prospective developers and homeowners. Photos courtesy of: the Acre Company - http://theacreco.com/developments

In addition to the River Bend Estates rural subdivision, Clay County has also experienced an increasing trend of “city dwellers” wanting to construct new homes on rural acreages where they feel like they can escape the city traffic and congestion. Whereas, these rural acreages are not necessarily associated with or part of a subdivision; rather these acreages are more scattered residential uses occurring on previously built acreages or portions of farmsteads sold off for construction of residential acreages. While the trend for farm residences and agricultural housing may be declining in Clay County, the trend for non-farm residences in rural areas appears to be stable if not slightly increasing. Most rural residential acreages have become especially evident near the perimeters of the larger communities, where families desire the country lifestyle, yet prefer to be close to the city amenities as well. It is expected that this practice will continue in the future with smaller groupings of estate lots or individual acreages being developed near the perimeter of Clay County’s larger cities. Clay County should encourage residential development to locate within or adjacent to the existing communities. However if development does occur the county needs to carefully plan and execute the greatest possible benefit to the county without negatively impacting prime agricultural land uses.

Finally, the potential for real increases in residential development over the next ten to twenty years in Clay County can be found near or adjacent to many of Clay County’s natural resources and water ways. Clay County has already seen expansive residential development along the western shore of Lost Island Lake over the past 10 years. This trend is expected to continue in the

113 Clay County, Iowa 2010 Comprehensive Plan future with additional lakes or river corridors being subject to similar residential development as experienced around Lost Island Lake. Any future residential development adjoining natural resource areas or sensitive environmental areas needs to be monitored as to mitigate any negative environmental impacts.

Control of residential development can be achieved though the use of regulatory measures such as zoning and subdivision ordinances. Zoning will delineate residential areas by type and density controls, and should reflect the policies of the land use plan to direct development accordingly. Subdivision regulations regulate the layout of subdivisions, lot sizes, infrastructure, etc., and require all proposals to conform to the plan.

To further guide residential development the following residential land use objectives and policy recommendations shall be considered. Objective 3. Provide opportunities for diverse housing types and locations to serve the residential needs of the present and future population. Policy 3a. Encourage new residential developments to locate adjacent to existing developed areas first, if possible before locating in the rural county. Policy 3b. Allow the conversion of abandoned farmsteads to non-farm residences in an effort to best utilize existing structures and developed properties. Policy 3c. Encourage prime areas for residential development; which includes those areas that can be adequately served by existing utilities. Secondary areas ideal for development would be those areas in need of private wells or septic tanks. Policy 3d. Housing should be encouraged to be located along primary transportation routes, so long as adequate ingress and egress are satisfied for the property and do not result in traffic hazards for the principal roadway or other transportation route.

Objective 4. Promote and encourage the Clay County Local Housing Trust Fund in support of housing projects. Policy 4a. Promote the rehabilitation or removal of unsafe or dilapidated housing structures in Clay County. Policy 4b. Encourage the cities and other non-profit corporations in Clay County to initiate or continue housing rehabilitation programs and new homeownership programs. Policy 4c. Address unsafe or uninhabitable farmsteads and abandoned housing units within the county, in support of new housing opportunities.

COMMERCIAL LAND USE Although commercial uses comprise one of the smallest land use categories in rural Clay County, these businesses remain important to the economy and continued success and growth of the county. Most of the commercial and retail needs are met through businesses located within one of the twelve cities in Clay County. When possible, commercial activities should be encouraged to locate within the cities where infrastructure, services, and a customer base are readily available

114 Clay County, Iowa 2010 Comprehensive Plan to serve these businesses. There are instances where certain agricultural related or other rural commercial businesses such as a farm implement or salvage yard dictates that it is better suited in a rural setting. Over the years, the U.S. Highways 18 and 71 and the Iowa Highway 10 corridors serve as the principal arterial routes through the county and have become the catalyst to developing a number of retail and commercial uses. Additional scattered commercial uses across the county are typically service or agricultural support type businesses. Some commercial businesses can also be found along the west side of Lost Island Lake serving the needs of the residents and tourists that visit the lake.

The largest concentration of commercial land uses in Clay County is comprised of a cluster of commercial businesses located west of Spencer between County Highway B-24 and West 18th Street heading west out of Spencer’s Industrial Park. If commercial uses are to be further promoted and developed in Clay County, the locations of planned commercial properties should be carefully considered as to not infringe upon prime agricultural land. According to the proposed Clay County future land use map, future commercial development is primarily situated adjacent to arterial highways or roadways and also located near the fringe of existing communities. These actions will likely help to preserve the county’s rural and agricultural.

To further guide future commercial developments, the following commercial land use objectives and policy recommendations shall be considered. Objective 5. Improve and increase commercial trade countywide, including the retention and promotion of agricultural businesses and ag-related support businesses. . Policy 5a. To encourage the clustering of commercial land uses in order to maximize consumer safety and convenience. Long term commercial development patterns near cities or along major transportation routes should be reviewed and encouraged if appropriate in these areas. Policy 5b. Encourage new commercial developments to first seek properties readily available with services and utilities prior to seeking development elsewhere in the county. Policy 5c. Prevent proliferation of unplanned or “spot” commercial uses, along with the development of commercial uses poorly related to surrounding land use types. Any of the following could be considered: . Where commercial uses are adjacent to major roadways, the use of frontage roads or other adequate ingress and egress should be considered to avoid traffic congestion and dangerous intersections. . An alternative to scattered commercial or “spot” development would be either the promotion of highway commercial “clusters” or further development of existing commercial areas within the county. Clustering of commercial activity within a specific area enhances the economic condition due to the drawing power of existing businesses. Policy 5d. Support the efforts of the local chambers of commerce in Clay County which strive to improve the commercial/retail climate of the entire county.

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INDUSTRIAL LAND USES The majority of Clay County’s traditional manufacturing, warehousing, distribution and assembly industries are located within designated industrial parks in the incorporated cities. Industries typically locate within these cities where basic and adequate utilities and services are more readily available to industries. However, due to limited undeveloped space in some cities, this is not always an option. Furthermore, there are simply some industries based upon their use, intensity, impact or need for raw products or transportation that are simply better suited to be located within the county. Those industries primarily related to the agricultural or mining market, including but not limited to sand, gravel or rock quarries, grain elevators, agricultural Photo courtesy of www.co.clay.ia.us/ related chemical fertilizer or feed suppliers and processors, ag-equipment manufacturers, renewable resource or alternative fuel processors and agricultural animal or commodity processors should be encouraged and welcomed to build and operate in Clay County, as long as due diligence has been met in regards to the impact provided upon the local environment by these proposed industries. In fact many of these previously listed businesses should be encouraged to locate within the county away from concentrated residential areas; where there is also easier access to rail, highway, and close to agricultural markets.

An expanding market across much of northwest Iowa, of which Clay County has really yet begun to tap into, is the alternative fuel, energy and renewable resources industries. Ethanol, soy biodiesel, wind generation, and other bio-engineered or renewable resources industries will become increasingly important to the continued economic growth and success of the county, region and state’s economy. These industries should be highly encouraged to locate within Clay County. When appropriate, financial incentives and enticing tax benefits should be considered and utilized for the recruitment of highly desirable industrial development considering Clay County. In a market when businesses and industries are always looking for the best deal, Clay County must be ready and willing in the future to make enticing offers for these highly desirable businesses to locate in the county.

Future industrial land uses is a difficult variable to plan for due to the many factors governing location, available land, transportation access, work force, availability of utilities and services, etc. Common industrial uses fall under one or more of the following industry types: basic industry, custom manufacturing, resource extraction, salvage, warehousing, distribution, research and biotechnical. As shown on the land use map, industrial developments are forming around the fringe of the larger cities and along major highway corridors in Clay County.

To support regional industrial developments, the following industrial land use objective and policy recommendations shall be considered.

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Objective 6. Encourage and support increased economic development efforts to promote industrial job creation or retention in Clay County. Policy 6a. Encourage new or expanding industries to locate in planned or adjacent to existing industrial areas in an effort to promote better usage of existing utilities and avoid scattering of industrial uses throughout the rural areas. Policy 6b. Encourage the location of industries with direct access to necessary transportation systems such as highway, railway and air service. Policy 6c. Industrial development should be served by adequate and appropriate utilities with the possible exception of; . Non-labor intensive industries . Industries which do not produce large amounts of waste . Industries that must be located near raw materials such as quarries or mining

Policy 6d. Continue to provide industrial uses adequate zoning protection from encroaching non-compatible uses. Policy 6e. Seek creative alternatives to increase the number of quality jobs available to residents of Clay County. Policy 6f. Support local and regional economic development groups, such as the Iowa Lakes Corridor Development Corporation, in their efforts toward business and employment recruitment to the region.

Objective 7. Support the increased interest and development of high tech, biotechnical, research, renewable resource and alternative energy industries in Clay County. Policy 7a. The county should utilize economic development incentives needed to recruit and support those industries with sustainable practices or environmentally friendly practices and products, which in turn supports good paying jobs for Clay County residents. Policy 7b. Seek and encourage the development of industries which utilize locally available materials as a basis for their products, especially those targeting renewable resources and alternative energy sources.

CIVIC/PUBLIC LAND USES Civic and public land uses include those properties including public or private utility providers or infrastructure systems, educational, religious, cultural, medical, protective, governmental and other uses which tend to be strongly vested with public/social importance. These land use types are typically compatible with all other land use types and as such their locations throughout the county are not as critical to land use planning policies. These uses are largely benign in their impact on surrounding properties, thus the scatted pattern of public uses is appropriate. With that stated, public or private utilities must be careful not to construct water or wastewater facilities or power substations, other buildings or equipment contiguous to residential growth areas. The

117 Clay County, Iowa 2010 Comprehensive Plan construction of major utility facilities and buildings must take into account the surrounding environment and conditions. Increased traffic and congestion at predicable times is often associated with uses such public uses like churches or other cultural and public properties. While periodic increases in traffic are often acceptable, congestion and safety issues should be addressed in the development of future public/civic uses. Examples of public/civic uses in Clay County include rural cemeteries, churches, municipal wastewater treatment lagoons, and the Iowa Lakes Regional Water treatment plant and wells.

To support cultural, civic, governmental, and public land use developments, the following civic and public land use objectives and policy recommendations shall be considered. Objective 8. Provide safe, efficient, and cost effective services and utilities to the residents and businesses of Clay County. Policy 8a. Seek financial resources to implement the provision, maintenance, or repair of utilities and services. Policy 8b. A welcoming and inviting environment in Clay County should be promoted by all residents, businesses, and county employees.

PARKS AND RECREATIONAL LAND USE Recreational land uses include parks, golf courses, and Photo of Scharnberg Park Campground other county owned recreational or natural resource lands. These uses provide many benefits and amenities to quality of life in Clay County. In providing an attractive and beautiful setting for residents to live and guests to visit, it must have a viable parks system and a variety of recreational activities. The appeal of attractive county parks and recreational opportunities is often overlooked as an important factor in community and economic development efforts of counties. Clay County cannot overlook both the Photo courtesy of www.scharnbergpark.com existing and potential growth in community and economic development benefits it will receive from hundreds or thousands of persons enjoying and participating in Clay County’s local and state parks Photo of Fishing Pier at Scharnberg Park and other outdoor recreation activities.

Clay County cannot afford to allow its “green” amenities remain static. Although residents of Clay County may be satisfied with current park and recreational amenities, the composition of the county will change over time and so must recreation systems and amenities change to meet changing future demands. Basic park planning standards suggest recreational land uses should comprise 1.5 acres per 100 population. Based on the Clay County’s 2008 estimated population of 16,691, standards would suggest Photo courtesy of www.scharnbergpark.com 118 Clay County, Iowa 2010 Comprehensive Plan a recommended total acreage of parks and recreational amenities in Clay County should equal 251 acres. In reality, there is 1,209 acres of identified county parks, recreation and natural resource uses in Clay County. This number is counting along with the county parks, the 160 Wanata State Park by Peterson. According to the previously identified standard for the number of recreational acres per person, Clay County should be able to accommodate park and recreational needs for a population base of 80,600. Even if you withdraw the public natural resource and open space areas, which tend to be more passive in nature, from the total amount of acreage and just consider the active use county parks, these properties still account for 329 acres. This number still exceeds the county’s recommended standard for the current population. The largest active recreational park in Clay County is Oneota Park at 154 acres, situated on the southeast corner of Spencer along the Little Sioux River corridor.

To guide the use of parks and recreational facilities in Clay County, the following parks and recreation land use objectives and policy recommendations shall be considered. Objective 9. Address proposed measures and the means to meet the future recreational needs of Clay County. Policy 9a. Continue to maintain a neat and welcoming appearance to the county’s parks and public spaces; since first impressions last. Policy 9b. Continue with annual maintenance of the county’s parks, but seek additional funding for needed improvements and new amenities. Policy 9c. Offer support to those activities which may be comprehensive or regional in nature, but beneficial to Clay County’s residents, including but not limited to trails connecting Clay and Dickinson Counties.

NATURAL RESOURCE/ENVIRONMENTALLY SENSITIVE LAND USES Clay County finds itself on the edge of a geographic land formation know as the prairie pothole region. Specifically the prairie pothole region of Iowa follows the borders of the Des Moines Lobe land formation which was once the site of a great glacier that moved south in north central Iowa. Once the glacier began retreating back north, the movement of ice on the landscape of Iowa created several pockets of shallow lakes, marshes, sloughs, fens, and wetlands. The region of prairie potholes extends down from the prairies of western Canada, across the Midwest Photo courtesy of www.co.clay.ia.us/ and ends in north central Iowa. Through many years, these wetland complexes and other environmentally sensitive areas have been drained in favor of agricultural and urban development. However, over the past few decades there appears to be a movement to recognize these natural resources for their wildlife habitat properties and surface water filtration abilities. Therefore, it is important that these areas be preserved in Clay County.

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Specific areas in Clay County which are located in the prairie pothole region and would therefore be considered within an environmentally sensitive area of Clay County includes the Lost Island Lake Area, Dewey’s Pasture wetland and upland complex, Mud Lake, Trumble Lake, Round Lake, Barringer Slough complex, Dan Green Slough, DU Marsh, and Elk Lake. There are also numerous other smaller tracts of land, both private and public, located across much of northeastern and eastern Clay County which would Photo courtesy of www.co.clay.ia.us/ be defined as natural resource or environmentally sensitive areas. For purposes of this land use planning document, the Ocheyedan River and Little Sioux River corridors and their associated tributaries are also defined as environmentally sensitive areas. Any development occurring in or near natural resource or environmentally sensitive areas, including the previously mentioned public areas or land included in any floodplains in Clay County should be met with a heightened level of review resulting in a determination of impact to the natural environment based upon the proposed development.

To guide the use and preservation of natural resource and environmentally sensitive areas, the following natural resources land use objectives and policy recommendations shall be considered. Objective 10. Promote the effective utilization of natural resource areas and encourage environmentally conscious developments in Clay County. Policy 10a. Recognize that Clay County contains many natural areas that should be protected from developments, both urban and rural, and to provide measures within the zoning ordinance to accomplish this task Policy 10b. Recognize that some types of both urban and rural developments may be acceptable adjacent to some of the environmental features in Clay County, but construction provisions should be developed which will help preserve the environmental nature of the area. Policy 10c Preserve floodplains and wetlands that would not normally be suited for developments. Policy 10d. Recognize that the best preservation of environmentally sensitive areas lie within public ownership, but through restricted zoning districts and regulations, preservation of these lands in private ownership may also be feasible. Policy 10e. Clay County will participate in the NFIP and will discourage building within designated floodplains. Any development within floodplain boundaries established by FEMA will be built in accordance with recommended NFIP standards. Policy 10f. If natural resource areas are included within a proposed development, they may be used as greenspace, open space or buffers between land uses.

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TRANSPORTATION AND INFRASTRUCTURE A well maintained and functioning transportation system is a vital link in any continued development of an area. The local transportation system and infrastructure network allows for the movement of raw and finished goods as well as provides avenues for personal transportation as well. Overall, Clay County has an adequate to good county transportation system with two federal highways and rail providing surface transportation, along with a regional airport providing air transportation service. The only key element missing from Clay County’s transportation network is immediate or close access to interstate travel. Photo courtesy of www.co.clay.ia.us/ Over the course of the next twenty years, it is not expected that any new major highways or interstates will be built in Clay County. Therefore, existing transportation systems must continually be updated and improved. As identified earlier in this plan, the Clay County Engineering Department is addressing a proactive road maintenance and bridge/culvert replacement and maintenance program in order to improve the transportation efficiency and road conditions in Clay County.

To support transportation and infrastructure land uses, the following transportation land use objectives and policy recommendations shall be considered. Objective 11. Continue to monitor and improve the safety and condition of Clay County’s roads and transportation corridors. Policy 11a. The county should continue to evaluate and maintain the county road system, including hard surfaced roads, farm to market routes and secondary road, while improving those higher volume routes. Policy 11b. The county should cooperate with local cities to plan for needed improvements to the transportation system in an effort to promote economic development efforts. Policy 11c. Continue to prioritize road and infrastructure projects; then adopt a yearly schedule for maintenance and repairs.

FUTURE LAND USES Clay County has a solid planning base to monitor its physical growth. This document should be updated on a regular basis, with minor revisions in the form of zoning changes and major revisions resulting from 10-20 year plan and ordinance updates. The County Zoning Administrator and members of the Planning and Zoning Commission and Board of Adjustment have very important responsibilities and it is vital that those individuals that comprise these boards be conscious of the county-wide effect from each decision made, and not tend to be single issue oriented.

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The process of deciding land uses for a specific area is a product of many variables. Factors affecting land use decisions may include the public’s best interest, social values, human behavior, economy, convenience, physical characteristics, and the political climate. Identifying the causes of land use patterns becomes even more complex as efforts are made to project and plan for future land uses. Essentially, most land use decisions consider the information presented, but are then based upon a combination of objectivity and subjectivity from the local Planning Commission or Board of Adjustment. The future land use plan is not a legal document like the zoning ordinance; rather it is a philosophy of future growth trends within the county. The future land use plan and map should become a guide for the County Zoning Administrator and the Planning and Zoning Commission to use in determining future zoning changes. Because this is a long range plan based upon projections to the year 2030, changes to this plan over the years may become necessary due to unforeseen variables.

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Chapter 14. ADDITIONAL DEVELOPMENT ISSUES

ANNEXATION Future development and growth of Clay County’s cities is inevitable, and county officials should realize this trend will continue. Annexation is the process through which county land contiguous to a city is legally added to that municipality; and therefore no longer considered rural unincorporated land. When considering the impact that future annexations may have upon the county at large, it is evident there is a need for county officials to clearly understand and review all proposed future annexations. The county should review, but approve voluntary annexations in most cases. After all, these landowners petitioning for voluntary annexations are not only willing but also wanting to become a part of a municipality. Regarding attempts from cities to initiate involuntary annexations, Clay County officials need to offer greater input about the need to control unorganized urban sprawl and protect the development interests of Clay County. In all cases, a proposed annexation will result in both benefits and disadvantages; thus, the county must look at both sides and make a value judgment. Studies have indicated: 1. Annexations based solely upon speculative growth or anticipated tax generating revenue sources should be discouraged, and likely not approved by the State’s City Development Board. 2. Large annexations may spell trouble if a municipality is forced to supply utilities to the furthest point in the annexation. 3. Except in cases where developed areas are annexed, service and utility costs usually occur prior to any benefit from increased tax revenue is available to off-set them. 4. Large annexations should be preceded by a study that will evaluate service requirements and revenue/expenditure relationships likely to result from the annexation.

If cities in Clay County are to consider undertaking possible involuntary annexations, it should be aware that the burden of proof is upon the annexing body as to the ability to offer the annexed area facilities and municipal services in a better quality and quantity than the area is currently accustomed to. Annexation solely to increase revenue is not justifiable in the eyes of Iowa law.

Laws that regulate annexation vary greatly from state to state, necessitating a brief narrative of the procedures as they relate to Iowa. Annexation usually is not a simple process, but rather one that requires considerable thought and consideration as to benefits and cost requirements prior to an official act. Cities, as well as county governments, must be kept abreast of current legislative proposals as they relate to annexation. Counties often find themselves in situations where large parcels of developing land adjacent to a city’s corporate boundaries are constantly under threat of being annexed. In Iowa, a city may annex land by one of five (5) methods: 1. Voluntary annexation not in an Urbanized Area 2. Voluntary annexation in an Urbanized Area 3. “80/20” voluntary annexation not in an Urbanized Area 4. “80/20” voluntary annexation in an Urbanized Area 5. Involuntary annexation.

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The City Development Board oversees the annexation process in Iowa. This board is comprised of community officials and representatives from across the state operating under the direction of the Iowa Department of Economic Development and has been granted authority by the State of Iowa to review and make recommendation on annexation proposals.

Voluntary Annexations Voluntary annexation is a relatively simple process that is handled at the local level between the city and property owner(s) requesting annexation. As the name would imply, voluntary annexations have 100% support from the landowners requesting the annexation. Voluntary annexations are typically approved by the city development board without issue.

"80/20" Voluntary Annexations The primary difference between a voluntary annexation and an “80/20” annexation is that a city may include up to 20 percent of the total land area to be to annexed containing land owners not wanting to annex into the community, as long as the remaining 80 percent voluntarily agree to the annexation. The City Development Board may request city services be provided to residents in the rural annexed area.

Involuntary Annexations Involuntary Annexations are initiated by the city and are opposed by the majority of landowners in the proposed rural county annexation areas. Before a city attempts such a process, they should review Chapter 368 Code of Iowa, as amended and the most recent City Development Board Administrative Rules appearing in the Iowa Administrative Code. Involuntary annexations can easily become a complex legal matter; thus, care should be given to assure that all requirements of the City Development Board are met. A city must be prepared to defend its actions by indicating how and when community facilities, services, and utilities can be extended into the proposed annexation. Once approved by the board, involuntary annexations must also be approved by a simple majority of the residents of the proposed annexation area and the residents of the city in a referendum vote. Petitions requesting involuntary annexations must indicate how municipal services will be provided by the city to the county annexed area within three (3) years of July 1 of the fiscal year in which the city taxes are collected against property in the annexed territory.

EXTRATERRITORIAL ZONING AND LAND USE Cities in Iowa may extend zoning and land use policies to affect the area inside a radius of two miles from the community’s existing corporate limits. However, two restrictions apply that limit a city’s ability to apply these land use regulations in Clay County. First, exclusive jurisdiction over non-agricultural land uses in the two-mile buffer is not available to cities within zoned counties. This is the case in Clay County as the county practices and enforces zoning and subdivision regulations. Secondly, agricultural land uses in the State of Iowa are immune to zoning of any type regardless of proximity to city boundaries.

Nonetheless, cities and counties may establish intergovernmental agreements authorizing a city or county to have specific levels of input into the other entity’s land use matters. These agreements may range from granting complete zoning control of the two-mile radius to the city to

124 Clay County, Iowa 2010 Comprehensive Plan allowing the county to occupy a non-voting seat on a city’s planning and zoning commission (or vice versa). Development issues discussed or addressed within such intergovernmental agreements between a city and county should cover such topics as: . Primary land use . Secondary land use . Utilities – water, sewer, electric . Infrastructure – roads, storm sewer . Public roads – concrete/asphalt/unimproved . Zoning regulations . Building Codes . Design Standards . Subdivision review and standards . Plat Review

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Chapter 15. PLAN IMPLEMENTATION

The preceding chapters of this plan establish the framework of the Clay County Comprehensive Plan with narratives, maps, charts, tables, and statistical information relative to planning desirable future development patterns. This section of the comprehensive plan intends to address those possible means of implementing such objectives and policy recommendations previously outlined in this plan. Because the scope of the Clay County Comprehensive Plan is long term in nature, its policy recommendations and the idea of implementing such policies may seem daunting. It is for this reason that the Clay County Board of Supervisors, county employees, and specifically the Clay County Planning and Zoning Commission should utilize this planning document to assist in developing short term planning programs such as the road improvement plan, capital improvements, financial budgeting, or parks and recreation plan among other examples. Additionally, the Planning Commission should evaluate the comprehensive plan on an annual basis in consideration of changing development patterns which may occur in any given year.

The private sector, including developers, investors, industries, businesses and homeowners will use this document to become informed of the official policies and positions of Clay County in regards to land use issues. This comprehensive plan will provide the general public with the framework to potentially assist in making investments, purchases or land development decisions in Clay County. County residents and potential developers should become informed with regards to those land uses that are permitted, encouraged, prohibited, protected or discouraged in Clay County. With this information in hand, the public should be able to make informed and knowledgeable decisions regarding developments within the county.

The public of government sector, including but not limited to Clay County officials, the State of Iowa, and all branches of the federal government will use this document to assist or guide in making future land use decisions in Clay County. While this evolving document is the result of efforts of the county Planning & Zoning Commission, it was prepared representing the interests of all county residents. Any future land use or development projects proposed by any of the cities, county, state or federal governments should follow the intent and spirit set forth in this document.

The Clay County Comprehensive Land Use Plan was prepared exclusively for the county by the Clay County Planning and Zoning Commission with technical assistance provided by the Northwest Iowa Planning & Development Commission. This document will and should be amended from time to time in the future, as deemed necessary by the Clay County Planning and Zoning Commission. While actual or individual enforcement of the specific policies or recommendations set forth in this plan may be difficult, the comprehensive plan is a policy document intended to serve as a guide for local decision makers in aiding the creation or amendments to the county’s regulatory ordinances such as zoning and subdivision regulations. Specific enforcement of land use decisions will be made in conformance with the Clay County Zoning Ordinance or Subdivision Ordinance. Changes recommended for enforcement controls should be in compliance with and consistent with the comprehensive plan’s future land use map.

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IMPLEMENTATION STRATEGIES With anticipated future changes, shifts and the potential for new growth and development in Clay County, these expected changes will bring about the opportunity to address these changes and establish a benchmark from which new trends in land use and development will be measured from. Along with change often means having to give something up or accept new means of looking at the same or new issues. This is why people often try to cling to the past. Most people like things the way they are, even though they know change is inevitable. Some people resist change simply out of fear of the future; they are more comfortable with the past or present. Clay County’s leaders of today and tomorrow are granted the responsibility of identifying, leading, and being the first to accept and embrace a bright future for Clay County. Listed below are samples of suggested attainable implementation strategies in which the county’s planning leaders and government leaders may explore to fully realize the maximum benefit from this comprehensive planning document. Clay County leaders may wish to accept and utilize some or all of these identified implementation measures or create additional measures to identify and measure Clay County’s future land use and development changes.

1. Establish a benchmark in time for Clay County, from which future growth and development patterns and changes will be measured against. 2. Create an action plan addressing county growth, city growth and annexation policies. 3. Allow County leaders, staff and government officials to attend training or educational workshops/conferences in an effort to gain new perspective on current or innovative trends in land use policy and regulatory controls. 4. Work collaboratively with local city leaders and regional or state economic development leaders to discuss, plan and implement measures to seek new and expanding employment opportunities in Clay County. 5. Establish an annual comprehensive plan review workshop in which members of the public are invited to share with County planning officials and the Board of Supervisors their thoughts, concerns, and visions for Clay County’s future. 6. Regularly update an inventory of the County Conservation’s parks, recreation areas, and natural resources; identifying completed and proposed short term and long term park, trail or other natural habitat development. 7. Clay County, with an aging population base, must address future needs and services targeted to the senior demographic. 8. Clay County, in a joint effort with the City of Spencer, its largest community/small urban center, must continue to exhibit a welcoming and accommodating character to new residents of the community and county. 9. In establishing new county policies, government leaders must remember the property rights and interests of land owners in Clay County. Consistency and fairness is a must. 10. Once the county completes a comprehensive review and update of its enforcement ordinances, such as zoning and subdivision regulations, it would be beneficial to Clay County to have the services of zoning administration and enforcement be consistent with the new or proposed rules adopted by the county.

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CITED REFERENCES AND INFORMATION SOURCES

1. Census 2000, Unites States Census Bureau, Geographic area: Clay County and Iowa 2. United States Census Bureau, 1990 Census, 1980 Census, 1970 Census. 3. 2008 State Profiles, Woods & Poole Economics, Inc., Washington D.C. Geographic area: Clay County, Iowa, 2005. 4. Iowa’s Counties: Selected Population Trends, Vital Statistics, and Socioeconomic Data, Willis Goudy, Sandra Charvat Burke, and Margaret Hanson, Census Services, Department of Sociology, Iowa State University, Ames, Iowa, 2001 Edition 5. Outdoor Adventure Guide, Iowa Association of County Conservation Board’s, 2002. 6. Soil Survey of Clay County, Iowa, Robert J. Vobora and Joseph Kristoff, Jr., Soil Conservation Service (a.k.a. Natural Resource Conservation Service), United States Department of Agriculture, 1998. 7. Iowa’s Groundwater Basics, A geological guide to the occurrence, use & vulnerability of Iowa’s Aquifers, Jean Cutler Prior, and others, Iowa Department of Natural Resources, 2003. 8. Iowa Department of Transportation, Division of Planning and Programming. 9. Iowa SCORP State Comprehensive Outdoor Recreation Plan, the Iowa Department of Natural Resources, 2006. 10. The Landowners Option-A guide to the voluntary protection of land in Iowa, Iowa Natural Heritage Foundation, Des Moines, Iowa, 1999. 11. Conservation Strategies for Growing Communities, Natural Resources Conservation Service, Iowa NRCS, 2004. 12. Landforms of Iowa, Jean C. Prior, 1991. 13. Forest Legacy Program Assessment of Need - State of Iowa, Iowa Department of Natural Resources, 2001. 14. Flood Plain Information, Little Sioux River, Ocheyedan River and Muddy Creek, City of Spencer and Vicinity in Clay County., U.S. Army Corps of Engineers, Omaha Corps of Engineers, Omaha, NE, June 1971. 15. Clay County, Iowa 2007 Plat Book, Marceline Mapping, 2007. 16. Clay County, Iowa 2009 Needs Assessment Statistical Report, Iowa State university Extension Community and Economic Development and the Institute for Design Research and Outreach, 2009. 17. The New Illustrated Book of Development Definitions, Harvey S. Moskowitz & Carl G. Lindbloom, 1993. (Land use and development definitions) 18. Iowa Lakes Regional Water – supplied a Service Territory Map for use in the Comprehensive Plan.

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REFERENCED WEBSITE RESOURCES

1. http://www.iowadotmaps.com/ Iowa DOT - Traffic Flow Map & Federal Functional Classification Map; IDOT traffic survey 2. www.iowaworkforce.org/ Iowa Labor Market Information, Iowa Workforce Development, 2007 3. www.seta.iastate.edu/ Regional Economics & Community Analysis Program (RECAP), 17 East Hall, Iowa State University, University Extension. 4. www.airnav.com/airport Airport information and statistics for the Northwest Iowa Regional Airport, Spencer 5. www.iowadnr.com/ Iowa Department of Natural Resources; information of state parks and preserves 6. www.ia.nrcs.usda.gov/ Iowa Natural Resource Conservation Service; conservation development practices 7. www.extension.iastate.edu/ Iowa State University Extension web site; Iowa Farmland Values 8. www.awea.org/ American Wind Energy Association 9. www.nwiarides.org/ RIDES, dba Regional Transit Authority 10. www.nationalregisterofhistoricplaces.com/IA/Clay/ The National Register of Historic Places, Clay County Iowa database 11. www.energy.iastate.edu/ Renewable Energy Source, Iowa Wind Projects 12. www.itsgood4.us/ Alternative Fuels web site (ethanol, wind energy, soy biodiesel) 13. www.e85fuel.com Database of National Ethanol Vehicle Coalition 14. www.iasoybeans.com/ Iowa Soybean Association; Biodiesel at the pump and delivery 15. www.city-data.com City-data.com is an online collection of analyzed data from numerous sources to create profiles of U.S. cities. 16. www.bestplaces.net Sperling’s Best Places website, Climate Data and annual precipitation statistics 17. http://www.iowa.gov/educate/ Iowa Department of Education – School District Certified Enrollment & Projections 18. www.lakescorridor.com Iowa Lakes Corridor Development Corporation 19. http://www.iowalakes.edu/campuses/spencer/index.htm Iowa Lakes Community College – Spencer Campus

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REFERENCED WEBSITE RESOURCES (Continued)

20. http://www.Claycounty.org/ The official Clay County website. Covering topics such as the Assessor, Attorney, Auditor, Supervisors, Emergency Management, Engineer, Information Technology and Zoning. 21. http://www.scharnbergpark.com/ Scharnberg Park website – Clay County Conservation Office 22. http://claycountysheriffsoffice.com/ Clay County Sherriff’s Office website 23. http://claycountyhousing.org/ Clay County Local Housing Trust Fund 24. http://iagenweb.org/ IA GenWeb Project: Greater Clay County Genealogical Society (GSCGS) – Clay County township information 25. www.USGenNet.org/ 1895 Atlas Map, Historic 1895 map of Clay County 26. http://data.bls.gov:8080/LOCATION_QUOTIENT/servlet/ Bureau of Labor Statistics, US. Department of Labor – Location Quotient and other statistical data 27. http://iwin.iwd.state.ia.us/pubs/region03/indprojregion03.pdf Iowa Workforce Development, Projected Employment for Region 3-4 28. http://www.allbusiness.com/companyindex/Iowa/Spencer/Health_Care_Facilities/ AllBusiness – Listing of Health Care Facilities in Spencer, Iowa 29. http://www.spencerhospital.org/ Spencer Hospital 30. http://www.averamckennan.org/amck/regionalfacilities/spencerfamily/index.aspx Avera Spencer Family Clinic 31. http://www.claycountyfair.com/ Clay County Fair Association 32. http://www.spencerevents.com/ Clay County Regional Events Center 33. http://www.spenceriowacity.com/airport.php Northwest Iowa Regional Airport, Spencer, Iowa 34. http://theacreco.com/developments The Acre Company, Spencer Iowa – information about River Bend Estates housing development in Clay County.

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APPENDIX A

Detailed Schedules of Soil Suitability Based Upon Types of Use

 Land Capability and Corn Suitability Rating  Prime and Other Important Farmlands

The following soil suitability schedules were provided from the Soil Survey of Clay County, Iowa, USDA Natural Resource Conservation Service

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APPENDIX B

Retail Sales Analysis & Report For Clay County, Iowa Fiscal Year 2008

Prepared By: Iowa State University Extension RECAP – Regional Capacity Analysis Program

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APPENDIX C

A SocioEconomic Profile Clay County, Iowa 2009

Produced by the Economic Profile System (EPS) February 13, 2009

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APPENDIX D

2009 Needs Assessment Statistical Report Clay County, Iowa

Conducted in cooperation with Iowa State University Extension and the Institute for Design Research and Outreach

Sponsored by: City of Spencer Clay County Community Foundation Clay County Local Housing Trust Fund

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