Town of Cassel, Marathon County

Town Board

Gerald Hargraves Roger Ahrens Steven Soczka

Planning and Zoning Committee

Todd Andreshak Linda King Bob Schumacher Chris Myhre Jason Mechelke

Mary Kay Hagenbucher – Clerk

Patty Lepak – Treasurer

Charlie Lang – Deputy Zoning Administrator

Adopted April 9, 2018

Cover Images: Town of Cassel; Marathon County Parks, Recreation, and Forestry

Prepared with the assistance of: North Central Wisconsin Regional Planning Commission

Table of Contents

1. Introduction ...... 1

2. Demographics ...... 5

3. Natural, Agricultural & Cultural Resources ...... 13

4. Housing ...... 24

5. Utilities and Community Facilities ...... 34

6. Transportation ...... 42

7. Economic Development ...... 51

8. Land Use ...... 59

9. Intergovernmental Cooperation ...... 70

10. Implementation ...... 73

11. Appendix A: Public Participation Plan ...... 81

12. Appendix B: Plan Resolution ...... 82

13. Appendix C: Plan Ordinance ...... 83

List of Maps

Map 1: Location ...... 4

Map 2: Natural Resources ...... 23

Map 3: Utilities & Community Facilities ...... 41

Map 4: Transportation ...... 50

Map 5: Existing Generalized Land Use ...... 68

Map 6: Future Land Use ...... 69

Chapter One Introduction

The Town of Cassel is rural township 20-Year Community Vision Statement located in central Marathon County. The town is located about 20 minutes south of Wausau. The town lies immediately to the The Town of Cassel southwest of the Village of Marathon will protect the rural City, and to the southeast of the Village of character of the town Edgar, as referenced in Map 1: Location. while recognizing the economic needs and The Town of Cassel Comprehensive Plan ownership rights of documents existing conditions in the property owners. town, identifies primary issues or concerns the town may need to address in the future and includes goals and Goals, Objectives, Policies, objectives to address those issues. It Strategies & Actions includes information on the town’s demographics, natural resources, land use, This document describes a variety of transportation, utilities, housing, cultural goals, objectives, policies, strategies and resources, community facilities, parks, actions the town has identified to help it economic development, and respond to issues and opportunities intergovernmental cooperation. identified in the Issues and Conditions report.

Definitions are provided below to clarify Goals and objectives have been developed the purpose and intent of each category. for each of the required plan elements.

For each of the goals and objectives, Definitions specific policies, strategies and/or actions are recommended to enable the community to achieve them. The  Goal: A goal is a statement that describes a implementation chapter at the end of this desired future condition. The statement is document compiles and prioritizes all the broad in scope and describes general concepts recommended action steps and identifies or things the community hopes to accomplish. who is responsible for implementation.  Objective: An objective is a statement that describes a specific course of action to achieve a goal or address an issue.

 Policy: A policy is a general course of action or rule of conduct to be followed to achieve community goals and objectives.

Town of Cassel 1 Comprehensive Plan 2018 Marathon County, Wisconsin  Strategies: Strategies are approaches that EDA – U.S. Economic Development involve a series of individual actions to Administration achieve a specific goal or objective. EMS – Emergency Medical Services  Actions: An action describes a specific effort that will be undertaken to achieve a ERW – Exceptional Resource Waters, a designation by the Wisconsin Department goal or objective. of Natural Resources

List of Acronyms FCL – Forest Crop Law

AADT – Average Annual Daily Traffic FEMA – Federal Emergency Management Agency ACS – American Community Survey FHA – Federal Housing Administration AHI – Architecture & History Inventory (a database of the Wisconsin Historical FIRM – Flood Insurance Rate Maps, the Society) official source of flood data from FEMA

ALICE – Asset-Limited, Income HOME – Home Investment Partnership Constrained, Employed Program

CCC – Civilian Conservation Corps (a HOPWA – Housing Opportunities for 1930s construction and conservation Persons with HIV/AIDS program) HUD – U.S. Department of Housing and CDBG – Community Development Block Urban Development Grant LEHD – Longitudinal Employment and CEDS – Comprehensive Economic Housing Dynamics Development Strategy LIHTC – Low Income Housing Tax Credit CIP – Capital Improvement Plan MCPL – Marathon County Public Library CPZ – Department of Conservation, Planning, and Zoning (Marathon County) NCHC – North Central Health Care

CTH – County Trunk Highway MFL – Managed Forest Law

CWA- Central Wisconsin Airport NAICS – North American Industry Classification System DOH – Division of Housing, within the Wisconsin Department of Administration NCWRPC – North Central Wisconsin DWD – Department of Workforce Regional Planning Commission Development NRHP – National Register of Historic Places

Town of Cassel 2 Comprehensive Plan 2018 Marathon County, Wisconsin USDA-RD – United State Department of NTC – Northcentral Technical College Agriculture, Rural Development

ORW – Outstanding Resource Waters, a UW-MC – University of Wisconsin – designation under the U.S. Clean Water Marathon County Act Wausau MPO – Wausau Area PASER – Pavement Surface Evaluation Metropolitan Planning Organization Rating WDNR – Wisconsin Department of PUD – Planned Unit Development Natural Resources

RLP – Regional Livability Plan WDOA – Wisconsin Department of Administration SHPO – State Historic Preservation Office WHEDA – Wisconsin Housing and STH – State Trunk Highway Economic Development Authority

TOPS Lab – University of Wisconsin – WisDOT – Wisconsin Department of Madison Traffic and Operations Safety Transportation Laboratory WPS – Wisconsin Public Service TSC – Traffic Safety Council Corporation

Town of Cassel 3 Comprehensive Plan 2018 Marathon County, Wisconsin

Town of Cassel 4 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Two Demographics

This analysis describes existing growth between 2000 and 2010. Average demographics and historical trends in the household size continues to decrease Town of Cassel and identifies the major overall nationwide, but has decreased demographic projections impacting Cassel much faster in the town. Table 2-1 shows over the next few decades. Both Marathon these changes. County and the State of Wisconsin are listed for comparison. This chapter The increase in total households over the includes subjects such as population, past 30 years was substantially higher households, age, education, and income. than the increase in population. This is likely due to a decrease in household size Population and Households of 40%, which reflects the national trend toward more households comprised of Historical Trends singles, couples without children, and widows or widowers. Millennials and The 2017 population estimate in the Town Baby Boomers, two of the largest of Cassel created by the Wisconsin demographic cohorts, are driving much of Department of Administration (WDOA) this household change and household is 919. The population in the Town of growth at the national level. Cassel has fluctuated between 1970 and 2010, according to numbers from the Cassel has long had larger households Wisconsin Department of Administration than the county and state. Declines in and the U.S. Census. Between 1970 and household size in Cassel, but household 1990 the population in the town declined, and family size in Cassel is still larger than before rising again between 1990 and 2010. Marathon County. Almost 80 percent of The total increase in population between households are family households. Far 1980 and 2010 was 1.33 percent, while more households in Cassel have children growth in the last decade (2000-2010) that are under 18 compared to Marathon was approximately 7.56 percent. By County. Almost 34 percent of households contrast, total households in the town in Cassel are two person households. The have grown every decade between 1970 vast majority of households are between and 2010. Household growth between one and five people, with just over 12 1980 and 2010 was 40 percent, much percent of households having five or more higher than the population growth of 1.33 people. percent. There was 19 percent household

Town of Cassel 5 Comprehensive Plan 2018 Marathon County, Wisconsin Table 2-1: Demographic Change, 1980-2010 % Change % Change 1980 1990 2000 2010 1980 to 2000 to 2010 2010 Total Population Cassel 899 816 847 911 1% 8% County 111,270 115,400 125,834 134,063 21% 7% State 4,705,767 4,891,769 5,363,675 5,686,986 21% 6% Total Households Cassel 230 245 271 322 40% 19% County 37,865 41,534 47,402 53,176 40% 12% State 1,652,261 1,822,118 2,084,544 2,279,768 38% 9% Average Household Size Cassel 3.9 3.33 3.1 2.83 -27% -9% County 2.85 2.75 2.6 2.49 -13% -4% State 2.77 2.61 2.5 2.43 -12% -3% Source: US Census. Wisconsin Department of Administration, 2010.

The population of Marathon County grew Projections from 125,834 in 2000 to 134,063 in 2010, an increase of 6.5 percent, compared to a 6.0 Figure 2-1 and Table 2-2 compare percent increase in the state and 9.7% in projected population in Cassel to the United States. Population growth in Marathon County, based on projections Marathon County has been concentrated made by the WDOA. The WDOA in the urbanized area surrounding population projections are recognized as Wausau. Most towns experienced modest Wisconsin’s official population percentage growth over the last two projections in accordance with Wisconsin decades. Most of the communities with Statute 16.96. These projections are based very high percentage growth also have on historical population and household relatively small populations. Five towns, growth in the community, with more as well as one city and one village, had recent years given a greater weight. The population decline between 1990 and Town of Cassel is expected to continue 2010. population growth through the year 2040 at a slower rate than Marathon County, but higher than historic rates. As shown in Table 2-3, the town is expected to increase in total population until 2035 when population growth flattens. Growth between 2010 and 2040 is expected to be approximately 10 percent, while the increase in the county is greater, at 14 percent.

Town of Cassel 6 Comprehensive Plan 2018 Marathon County, Wisconsin Figure 2-1: Town of Cassel Population Change 1200 1000 800 600 400 200 0 1970 1980 1990 2000 2010 2020 2030 2040 Population Projected Population Source: U.S. Census, WDOA

Figure 2-2 and Table 2-3 show household average household size was 2.83 in 2010 projections completed by the WDOA. and was expected to decrease to 2.67 by These projections show that the number 2040. In 2010 in Marathon County the of households is expected to grow more average household size was 2.49. quickly than the population, reflecting Household growth is expected to historic trends for decreasing household continue through the year 2040 for both sizes. Household growth in the town is the county and the town. expected to be lower than the county. The

Table 2-2: Population Projections – 2010-2040 Total People by Year 2010 2015 2020 2025 2030 2035 2040 % change Cassel 911 920 950 975 990 1,000 1,000 10% County 134,063 136,510 142,200 146,595 150,130 152,120 152,790 14% Source: Wisconsin Department of Administration, Population Projections, 2013

Figure 2-2: Town of Cassel Household Change 400

300

200

100

0 1970 1980 1990 2000 2010 2020 2030 2040 Households Projected Households Source: U.S. Census, WDOA

Town of Cassel 7 Comprehensive Plan 2018 Marathon County, Wisconsin Table 2-3: Household Projections – 2010-2040 Total Households by Year % 2010 2015 2020 2025 2030 2035 2040 change Cassel 322 328 342 354 363 371 375 16% County 53,176 54,657 57,394 59,611 61,524 62,958 63,730 20% Source: Wisconsin Department of Administration, Household Projections, 2013

Age years old, higher than the county, while 20.5 percent have individuals 65 years or The town’s median age in 2000 was 34.7 older, lower than the county. Comparing years, lower than the county and state Figure 2-3 and Figure 2-4 shows that the medians at 36.3 and 36.0, respectively. By age distribution in Cassel is much more 2010 the median age in Cassel was 39.7, concentrated in the middle ages and higher than the state at 38.5 years and the teenage children than the county, with county at 39.4 years. 38.5 percent of fewer young adults and adults older than households have individuals under 18 70.

Figure 2-3: 2010 Town of Cassel Age Cohorts

85 years and over 80 to 84 years 75 to 79 years 70 to 74 years 65 to 69 years 60 to 64 years 55 to 59 years 50 to 54 years 45 to 49 years 40 to 44 years

Age Age Cohort 35 to 39 years 30 to 34 years 25 to 29 years 20 to 24 years 15 to 19 years 10 to 14 years 5 to 9 years Under 5 years 7.0% 5.0% 3.0% 1.0% 1.0% 3.0% 5.0% 7.0% Number of Persons Male Female Source: 2010 Census, DPDP1

Town of Cassel 8 Comprehensive Plan 2018 Marathon County, Wisconsin Figure 2-4: 2010 Marathon County Age Cohorts

85 years and over 80 to 84 years 75 to 79 years 70 to 74 years 65 to 69 years 60 to 64 years

55 to 59 years

50 to 54 years 45 to 49 years 40 to 44 years

35 to 39 years Age Age Cohort 30 to 34 years 25 to 29 years 20 to 24 years 15 to 19 years 10 to 14 years 5 to 9 years Under 5 years 7.0% 5.0% 3.0% 1.0% 1.0% 3.0% 5.0% 7.0%

Number of Persons Male Female Source: 2010 Census DPDP1

Race and Ethnicity Education and Income Levels

According to the 2012-2016 American Educational attainment in the town has Community Survey (ACS) 5-Year increased over the 2000 to 2010 period. Estimates, 96 percent of the population in The percentage of population 25 and older Cassel is White, about the same with a high school education increased proportion as it was in 2000 and 2010. nearly ten percentage points from 84.6 About 2.5 percent identified as “Two or percent to 94.1 percent. The proportion of More Races.” About 2.4 percent identified those with a bachelor’s degree has almost as Hispanic or Latino Ethnicity in 2010, doubled since 2000. These increases were while 1.3% identified as “Some Other of a much higher magnitude than Race.” In 2000, 2.0% identified as Asian, increases in the county and the state. The while 0.5% identified as Hispanic or proportion of people with an associate’s Latino Ethnicity. degree has increased slightly over those ten years, by approximately one percentage point. The proportion of people with less than a high school education in the town is lower than the county and the state. Figure 2-5 and Table 2-4 show more detail on educational attainment.

Town of Cassel 9 Comprehensive Plan 2018 Marathon County, Wisconsin Figure 2-5: Educational Attainment, Age 25 and Older, 2016

3.5% 7.7% 9.6% 15.2% 16.2% 18.7% 13.8% Graduate or Professional Degree 12.1% Bachelor's Degree 10.3% Associates Degree 17.4% 18.8% Some College, No Degree 21.0% High School Graduate 9th to 12th Grade, No Diploma Less Than 9th Grade 45.6% 36.2% 31.7%

2.2% 5.0% 5.7% 2.3% 3.8% 3.0% Source: 2012-2016 ACS Cassel County State

Table 2-4: Educational Attainment Change 2000-2016

Town of Cassel Marathon County Wisconsin Educational Attainment 2000 2010 2016 2000 2010 2016 2000 2010 2016 Percent high school graduate or higher 84.6% 94.1% 95.5% 83.8% 89.2% 91.2% 85.1% 90.2% 91.3% Percent bachelor's degree or higher 8.5% 15.1% 18.7% 18.3% 21.9% 23.9% 22.4% 26.4% 28.3% Source: US Census 2000, ACS 2012-2016

Table 2-5 shows median household for inflation. The median household income for the Town of Cassel. The income of $75,781 is higher than Marathon median household income for Town of County with a median of $54,227, and Cassel residents was $75,781 in 2016, up higher than the state at $54,610. Income from $52,614 in 2000. However, after distribution among Cassel residents has adjusting for inflation, real median shifted upwards since 2000, with more household income only increased by about people earning between $75,000 and $1,628. Marathon County and Wisconsin, $199,999, and the same number of people meanwhile, experienced a decline in earning 200,000 or more. median household income when adjusted

Town of Cassel 10 Comprehensive Plan 2018 Marathon County, Wisconsin Table 2-5: Median Household Income 2000-2016 Minor Civil Division 2000 2016 Adj. Net Change* % Change* Town of Cassel $52,614 $75,781 $1,628 2.2% Marathon County $45,165 $54,227 -$9,428 -14.8% Wisconsin $43,791 $54,610 -$7,108 -11.5% Source: US Census 2000, ACS 2012-2016 & NCWRPC 2017 *Adjusted for inflation in 2016 dollars

Employment Characteristics the town who are 16 years and older and had a job at the time of the Census. According to the 2012-2016 ACS, the 585 employed residents of Cassel had median In 2000 there were 475 employed people earnings of $38,182, while the mean living in the Town of Cassel, and by 2010 earnings of full-time, year-round workers this had increased to 549. Most residents are $46,335. Median earnings are higher as were employed in management, business, education increases, ranging from $34,886 science and arts occupations, and this for high school graduates to $58,750 for employment has increased over the those with a bachelor’s degree. decade. Production, transportation and material moving occupations were second, Table 2-6 shows the breakdown of the and sales and office occupations were employed population of the town in 2000 third. Production, transportation and and 2010 by occupation. The “employed material moving occupations and sales population” is defined as people living in and office occupations have declined slightly, while service occupations have increased.

Table 2-6: Resident Occupation 2000 – 2010, Town of Cassel Occupation Sector 2000 2010 Management, business, science, and arts occupations** 28.4% 34.4% Production, transportation, and material moving occupations 22.5% 18.8% Sales and office occupations 25.1% 18.2% Natural resources, construction, and maintenance occupations** 16.5% 16.9% Service occupations 7.6% 11.7% Total Employed* 475 549 Source: WDOA * “Total Employed” represents employed civilian population 16 years and over ** Some changes may be due to changes in name and categorization of occupations between the 2000 and 2010 Census.

Town of Cassel 11 Comprehensive Plan 2018 Marathon County, Wisconsin Demographic Trends with fewer people. This can increase the cost of services on a per person basis.  The Town of Cassel has experienced

fluctuations in population over the last

50 years, declining between 1970 and  Median household income has grown 1990, then increasing between 1990 more in Cassel than the county and and 2010. the state.

  Total households in the town have Educational attainment has grown steadily increased since 1970, while faster than the state, but higher average household size continues to educational attainment lags behind decrease leading to more households the county and the state.

Town of Cassel 12 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Three Natural, Agricultural & Cultural Resources

Because natural resource features do not strategies. These are described in more follow geo-political boundaries, it is detail in the Parks section. important to consider their patterns and inter-relationships on a broader scale. In Marathon County Land and Water addition, many of the programs for Resource Management Plan protecting or mitigating impacts to natural resources are administered at the The Marathon County Land and Water county, state or federal level. Thus, an Resource Management Plan outlines a overview of recent county-wide natural comprehensive strategy for the resource planning efforts is described implementation of soil and water below, followed by a description of local conservation in Marathon County from natural resource conditions. Of particular 2010 to 2020. The Land Conservation and interest are geographic areas of the Zoning Committee identified the landscape encompassing valued natural following long-term program outcomes resources features grouped below by for the natural resource protection efforts resource type, including water, soil and in Marathon County: biological resources.  Land Use activities are well planned to Previous Plans and Studies enhance community development, Related to Natural and minimize conflicts, maximize Agricultural Resources infrastructure investments, and protect rural character.

In the last decade, several plans were  Improve and protect the surface and prepared by the county specifically to ground water assets to enhance public address protection and management of health and safety, recreational natural resources. These plans may be opportunities, and economic used as resources to guide local policy and development. decision making regarding resource management and protection. In addition  Maintain the soil and water resources to the plans listed below, Marathon as productive assets through topsoil County and several local communities and organic matter conservation. have adopted park and outdoor recreation plans that discuss natural resource based  Marathon County agriculture and recreational facilities and protection woodlot producers are economically strong.

Town of Cassel 13 Comprehensive Plan 2018 Marathon County, Wisconsin Marathon County Farmland Marathon County Groundwater Preservation Plan Protection Guide

The Marathon County Farmland The Groundwater Protection Guide was Preservation Plan is required under and extension of a 1988 groundwater plan. Chapter 91 of the Wisconsin Statutes. The In April 2001, the guide was created to purpose of this plan is to guide and assist county and local officials in setting manage the preservation of farmland and policy related to groundwater. It also agricultural production capacity. Most of serves as a resource for information about the town was designated as farmland groundwater and strategies to address preservation areas in 2013. issues related to groundwater protection. The county is considering a new The Farmland Preservation Plan places groundwater planning effort. nearly the entire township within the farmland preservation area, with only a USGS Protecting Wisconsin’s few parcels classified under the 15 year Groundwater through Comprehensive growth area throughout the town, mostly Planning outside of the Village of Marathon City and along STH 29. Additional parcels at In a joint effort by the Wisconsin the intersection of CTH S and Alpine Department of Natural Resources, the Road, CTH N and Cardinal Lane, and University of Wisconsin System, and the along STH 107 between Soda Creek Road U.S. Geological Survey, a website has been and CTH N are also designated within the made available with data and information 15-year growth area. on geology, general hydrology, and groundwater quantity and quality. The Marathon County Forest Ten-Year website was developed to aid government Comprehensive Use Plan officials and planners in addressing groundwater in their comprehensive The Marathon County Forest Ten-Year plans. The most recent data available for Comprehensive Use Plan is a management Marathon County was published in 2007. guide for the Marathon County Forest and The full Marathon County report can be is updated every ten years. The mission of found at their the plan is to manage and protect natural website:wi.water.usgs.gov/gwcomp/ resources on a sustainable basis for the find/marathon/. ecological, economic, educational, recreational, and research needs of present Water Resources and future residents throughout the county. The report includes a number of Marathon County contains abundant recommendations for timber management, water resources. Many have remained in a wildlife habitat and game management, fairly pristine state and others are in need land acquisition and forest boundary of focused efforts to improve water management, biodiversity management, quality. Outstanding Resource Waters watershed management, and tourism. (ORW) and Exceptional Resource Waters (ERW) designations are derived from an amendment to the U.S. Clean Water Act, which directed states to identify waters that were largely

Town of Cassel 14 Comprehensive Plan 2018 Marathon County, Wisconsin unaffected by pollution and should remain Federal Emergency Management Agency that way. States were required to develop (FEMA) on Flood Insurance Rate Maps “anti-degradation” policies to protect (FIRM). The floodplain includes the these waters from pollution. As a result, floodway and the flood fringe. Areas wastewater entering an ORW must be as within the 100-year floodplain are clean as the water in the “outstanding” associated with Soda and Scotch creeks. water body. The anti-degradation policies only apply to point sources of pollution, Wetlands such as an industrial discharge pipe. However, Wisconsin has other programs Most wetlands are located adjacent to the in place to control non-point source creeks and their tributaries. There are a pollution, such as animal waste and variety of wetland types, including pesticides in farm runoff, urban runoff, forested, emergent/wet meadow, and and failing septic systems. scrub/shrub wetlands. A fairly large forested wetland exists in the NW The Wisconsin Natural Resources Board quadrant of the town just west of CTH S. also wanted to extend higher levels of protection to top trout waters. As such, Wetlands in Wisconsin were defined by the WDNR established a second category the State Legislature in 1978 as: of waterways to be protected under the anti-degradation policy; these are the "An area where water is at, near, or above the land ERW. Wastewater entering ERW must surface long enough to be capable of supporting meet minimum clean water standards, aquatic or hydrophytic (water-loving) vegetation although higher standards are encouraged and which has soils indicative of wet conditions.” where feasible. Programs in three levels of government - There are no ORW or ERW in the Town local, state and federal - regulate activities of Cassel. in wetlands. There are dozens of wetland types in Wisconsin, characterized by Streams/Rivers vegetation, soil type and degree of saturation or water cover. Some of the The two main creeks located in the town more prominent wetland types are: are Soda and Scotch Creeks. There are several smaller tributary creeks  Aquatic Bed wetlands contain plants throughout the town. The south ¼ of the growing entirely on or in a water body township is part of the Lower Big Eau no deeper than 6'. Plants may include Pleine River Watershed and most of the pond-weed, duckweed, lotus and rest of the town is in the Lower Rib River water-lilies. Watershed. Both have been identified as priority watersheds by the WDNR.  Marshes are characterized by standing water and dominated by Floodplains cattails, bulrushes, pickerel-weed, lake sedges and/or giant bur-reed Floodplains consist of land likely to be covered by floodwater during the regional  Sedge or "Wet" Meadows wetlands (100-year) flood. Floodplain areas are may have saturated soils, rather than based on information compiled by the standing water, more often than not.

Town of Cassel 15 Comprehensive Plan 2018 Marathon County, Wisconsin Sedges, grasses and reeds are whether more farmland is owned or dominant, but look also for blue flag rented, and the financial condition of iris, marsh milkweed, sneeze-weed, landowners.1 mint and several species of goldenrod and aster. The Town of Cassel has some conditions favorable for farmland conversion and  Scrub/Shrub wetlands include bogs fragmentation by development, including and alder thickets and are the proximity to Edgar, Marathon City, characterized by woody shrubs and and Wausau, and State Highway 29. The small trees such as tag alder, bog birch, lack of availability of public sewer and willow and dogwood. water limits the development potential of the town, but likely means that  Forested wetlands include bogs and development will occur near Edgar and forested floodplain complexes. They Marathon City, where sewer and water are characterized by trees 20 feet or service is available. more in height such as tamarack, white cedar, black spruce, elm, black Soil Types ash, green ash and silver maple. The predominant soils in the town consist Groundwater of the Fenwood-Rietbrock-Rozellville association. Soils of the Chetek-Rosholt- Depth to groundwater within the town Oesterle association are located along varies from shallow to moderately deep. Scotch Creek in the NE quadrant of the Groundwater availability is sufficient for town. Some small areas of Mahtomedi- current development and land uses near Fordum-Sturgeon and Loyal-Withee- Scotch Creek. In other areas of the town, Marshfield also exist. Potential for soil groundwater supply can be limited. erosion is 2.0 – 3.0 tons/acre/year. Susceptibility for soil erosion is similar to Agricultural and Soil Resources the average soil loss experienced by Marathon County as a whole and is not a major concern. Farmland Fragmentation and Development

Development can affect the viability of Prime Farm Soils farming in an area. As development occurs amongst farm operations, farm owners Most (80%+) of the town is covered in and operators are faced with the decision Class 1 or 2 prime farmland soils. These to continue making investments in class designations refer to the quality of farming, or to eventually sell their land for soils for growing crops and are based on development. Those that anticipate selling United States Department of Agriculture reduce investments in equipment and (USDA) classifications. Class 1 soils are improvements and production falls. It’s the best soils in Marathon County for been found that this can cause ripple growing all crops. Class 2 soils are also effects on other farms within a three mile very good agricultural soils, however, they radius. The degree to which this occurs is may be prone to wetness, may need to be largely dependent on the area’s proximity to shopping and job centers, proximity to 1 Daniels, Tom and Deborah Bowers. 1997. Holding Our Ground: Protecting America’s Farms and Farmland. Island Press. Washington public water, sewer and major roads, D.C./Covelo, CA

Town of Cassel 16 Comprehensive Plan 2018 Marathon County, Wisconsin drained, and are therefore less desirable than Class 1 soils. It should be noted that Other methods include exclusive not all prime farm soils are used for agricultural zoning and other methods of farming; some have been developed with non-exclusive zoning. Exclusive residential or other uses. The “prime farm agricultural zoning does not allow any soils” designation simply indicates that other uses, and is generally avoided for these soils are good productive farmland. fear of legal challenges over a regulatory “taking” of private property. In addition to Steep Slopes minimum lot sizes, non-exclusive zoning can include an area-based allocation, A few areas of steep slopes are associated allowing a farm to develop a small amount with the creek in the northeast. Steep of non-farm dwellings on small lots, slopes are defined as slopes with gradients usually under two acres, e.g. one lot for over 12 percent. Steep slopes pose every 25 acres of farmland. Another limitations to development and increase method is designating an agricultural the potential for soil erosion. buffer zone with smaller minimum lot sizes of 5 to 10 acres, usually where it is Contamination expected that sewer and water will be available in the future, with the All identified contaminated soil and water assumption that the land will be further cases in the Town of Cassel have been subdivided at that time. closed or resolved. There are no known brownfields within the town at this time. Adopting farmland preservation zoning in accordance with Wisconsin State Statutes Farmland Preservation can help preserve farmland in the designated areas. The Marathon County There are many methods of preserving Farmland Preservation Plan identifies farmland to maintain farm productivity nearly all of the land in the Town of Cassel and minimize the impacts of development. as farmland preservation areas, except a One that has been attempted in the Town few parcels scattered throughout the of Cassel before, but was observed to be town, near Marathon City, and along STH unsuccessful, is a minimum lot size of 35 29. This means that the town could adopt acres for residential uses. It is possible a a Department of Agriculture and different minimum lot size (size vary Consumer Protection (DATCP) certified widely, some communities use 80 acres, farmland preservation zoning district to some use 160, and some use minimums as protect farmland deemed important large as 320) would be more effective in within these areas. This zoning district reducing development and fragmentation. would also make landowners eligible for Minimum lot sizes in agricultural districts farmland preservation tax credits. should reflect lot sizes needed for a minimum viable farm size, and the historic pattern of lots in Wisconsin suggests somewhere around 40 acres is most practical. Current zoning in Cassel requires a minimum of 2 acres and a maximum of 10 acres in residential zoning districts.

Town of Cassel 17 Comprehensive Plan 2018 Marathon County, Wisconsin Biological Resources inventory include Blanding’s Turtle and the Wood Turtle. Sensitive species such as cave bats have been removed from this list. Vegetation

Much of the town consists of cropland or specialty crops. Areas adjacent to creeks and tributaries are generally wooded.

Wildlife Resources and Habitat

Wildlife resources include a variety of game and non-game species of birds, mammals, fish, reptiles and amphibians that typically live in Marathon County. Common types of wildlife include deer, wild turkeys, raccoon, squirrels, Blanding's Turtle, a Special Concern species present in Cassel. songbirds, waterfowl, bear, badger, wolf Image Source: Wisconsin DNR and raptors. Wildlife resources are abundant in the many undisturbed Cultural Resources sanctuaries, refuges, reserves, and scattered habitats located throughout the ‘Cultural resources’ is a broad term that county. Numerous other species of can encompass many aspects of our migrating birds use habitats in Marathon heritage. Cultural resources may include County for food, shelter, and resting stops archaeological sites and cemeteries, during seasonal migration. historic buildings and landscapes, historic transportation routes, or traditional There is a significant amount of wildlife cultural properties important to American habitat in Marathon County. In addition Indians or other cultural groups. Cultural to county parks and forest units, major resources are those elements around us wildlife habitat areas include: the George that signify our heritage and help to evoke W. Mead Wildlife Area, the McMillan the sense of place that makes an area Marsh State Wildlife Management Area, distinctive. Cultural resources include and Rib Mountain State Park. Private buildings, sites and landscapes that help forests, open lands, and areas adjacent to communities retain their sense of identity bodies of water and wetlands also serve as in an increasingly homogenized society. valuable habitat and wildlife corridors. Maintaining connections between habitats is very important to allow species to move around, promoting biodiversity. Brief History of the Town of Cassel Threatened and Endangered Species The Town of Cassel, along with the Town Aquatic and terrestrial endangered, of Marathon to the east, was settled by a threatened, or special concern species are group of Pittsburgh mill workers. Known all present within the town. Document as the Pittsburgh German Homestead species in the WDNR natural heritage Society, the group banded together in 1856

Town of Cassel 18 Comprehensive Plan 2018 Marathon County, Wisconsin to purchase land in Wisconsin. Armed German parentage in the late nineteenth with deposits of $100 per worker, century. As late as 1905, 36 of 41 representatives arrived in Stevens Point townships in the county were still and purchased 3,000 acres in what later predominantly populated by persons of became the Towns of Marathon and German descent. Cassel. The settlers followed in 1857 and took steamboats from Stevens Point to Properties Listed on the National Mosinee, then continued their journey Register of Historic Places with American Indian guides to their new (NRHP) location.

Marathon City, in the northeast corner of There are no properties in Cassel listed on Cassel, was platted as a village in 1858. In the NRHP. The town does not have a 1870, the arrival of Henry Fricke and his local historic preservation commission. construction of a grist and saw mill led to growth of the community. When The Wisconsin Historical Society lumbering declined as the primary maintains the Wisconsin Architecture & economic activity, Marathon City became History Inventory (AHI) that identifies a service center for surrounding farmers, any properties that may have been who had turned to dairying. By the 1900s, surveyed in the past; the Inventory does there were over 70 cheese factories in the not convey special status and may not be Cassel area, many cooperatively owned by current. The inventory may be reviewed the farmers. at www.wisconsinhistory.org/ahi/index.htm On the northwest corner of Cassel is the l. There is 1 historic property in Cassel Village of Edgar, incorporated in 1898. that has been previously surveyed and Edgar was the site of a logging camp on included in the AHI. Scotch Creek until the 1891 arrival of the Milwaukee, Lake Shore & Western made The State Historic Preservation Office it a railroad stop. Although the town had (SHPO) has identified six archaeological two sawmills, it soon evolved into a sites and historic cemeteries in Cassel. service center for the surrounding farmers. Cemeteries, Burial Mounds, Other Although a small settlement of Polish Burials immigrants came to Cassel in the 1870s, the town was in the heart of the German Wisconsin Statute 157.70 provides for the settlement of Marathon County. Cassel protection of all human burial sites, was settled by Germans who had including all marked and unmarked previously lived in Pittsburg, but other burials and cemeteries. There are Germans in the north central section of currently 133 cemeteries and burial areas the county hailed from Pomerania, West identified in Marathon County, and it is Prussia, and Brandenburg. In addition to likely that other cemeteries and burials the Town of Cassel, the German may be present. Suspected burial mounds settlement was concentrated in Marathon, or unmarked burials must be reported to Maine, Berlin, Wien, Wausau, Stettin, Rib the State Burial Sites Preservation Office. Falls, and Hamburg. Approximately 75% If human remains are uncovered during of the population in the county was of excavation, all work must cease pending

Town of Cassel 19 Comprehensive Plan 2018 Marathon County, Wisconsin review of the Burial Sites Preservation  Lack of Current Information - Although Office. All cemeteries and burials in a brief countywide historic properties Marathon County should be catalogued survey was carried out in 1975-77, there under Wis. Stat. 157.70 to provide has been no update. Many properties maximum protection of these sites. identified at that time may be gone, while other properties not previously surveyed may now be evaluated in a Table 3-1: Known Cemeteries new context. It is necessary for the Cemetery Name Location Section county to have current information Cassel STF 29, moved to 4 about cultural resources in order to Edgar Cemetery St. John Co. H., south of 18 maximize planning and make the best Catholic/Edgar Edgar use of historic properties. Protestant Sacred Heart Catholic Co. S. 23 Source: www.rootsweb.com/~wimarath/CenLocations.htm  No Recognition Process - Outside the City of Wausau, there is no process to Issues recognize historic buildings or begin to plan for their protection. Once historic properties are identified, towns and  Wetlands - Preservation of wetlands is villages do not have an established important to residents. Identification mechanism for recognizing them or of preservation tools should be integrating them into ongoing planning explored. processes.

 Forests - Preservation of woodlands is  Rural Character and Historic Resources important to residents. Identification - In Marathon County, residents have of preservation tools should be expressed a strong desire to preserve explored. Voluntary forest the rural character of the county and preservation, such as MFL and raised concerns about increasing ex- conservation easements should be urban development and the decline of encouraged. working farms. An important part of rural character is the rural landscape  Farm Land - Preservation of prime and the buildings that convey that agricultural lands is important to sense of place. While it is important to maintain the rural heritage and address the location and type of new economy of the town. In the past, development, there is also a need to minimum lot sizes of 35 acres have preserve some visible reminders of rural appeared to result in the removal of character, including working farms. large parcels of land from production, Without preserving some of the rather than smaller parcels. However, it existing resources, including is difficult to know whether smaller farmsteads and farmlands, the very minimum lot sizes during the same characteristics that attracted residents time period would have resulted in will increasingly be lost. more parcels being removed from production due to cheaper land prices,  Protection of Archaeological Sites and resulting in more farmland Cemeteries – Cultural resources fragmentation. planning includes identification and protection of archaeological sites and

Town of Cassel 20 Comprehensive Plan 2018 Marathon County, Wisconsin historic cemeteries. The Wisconsin the Managed Forest Law, to Historical Society maintains a list of preserve forests. reported sites and cemeteries, representing a fraction of sites that are Policies actually present. This information is often overlooked and should be  Inform property owners of state and incorporated into the planning process local programs that preserve for local communities. forestlands.

Goals, Objectives and Policies Strategies and Actions

Goal 1: Protect wetland areas from the  Send owners of private forestland encroachment of development. information on preservation programs.

 Objective: Enforce existing wetland  Perform feasibility analysis to regulations set by county/state. determine the maximum amount of forestland the town could publicly  Objective: Discourage additional own (if any). development in wetland areas.  Encourage developers to maintain as Policies much forestland as possible in new developments. Promoting  Encourage developers to consult with conservation subdivisions or other WDNR officials before submitting preservation techniques. development proposals. Goal 3: Preserve historically significant Strategies and Actions buildings and sites.

  Communicate the desire for wetland Objective: Work with local historical protection to the WDNR. societies, like the County Historical Society, to identify historic resources  Report instances of possible so they may be considered in future regulation infraction to the WDNR. planning.

 Obtain a main contact person from  Objective: Ensure that any known each agency that the town cemeteries, human burials or communicates with at the county and archaeological sites are protected WDNR. from encroachment by roads or any development activities. Goal 2: Preserve forestland. Policies  Objective: Explore public ownership of forestland.  Preserve historically significant structures and locales within the  Objective: Encourage private jurisdiction. participation in programs, such as

Town of Cassel 21 Comprehensive Plan 2018 Marathon County, Wisconsin Strategies and Actions  Help interested properties owners  Contact the Marathon County obtain information on their property if Historical Society for tips on how to they feel it is historically significant. inventory significant structures.  Celebrate historic local sites with a  Consider teaming with other local pamphlet or other materials for communities to form a committee that dissemination. records historic sites.

Town of Cassel 22 Comprehensive Plan 2018 Marathon County, Wisconsin Town of Cassel 23 Comprehensive Plan 2018 Marathon County, Wisconsin

Chapter Four Housing

Housing characteristics and trends are “The Consolidated Plan provides the framework important components of a for a planning process used by states and localities comprehensive plan. The physical location to identify housing, homeless, community, and of housing determines the need for many economic development needs and resources, and to public services and facilities. Furthermore, tailor a strategic plan for meeting those needs.” understanding dynamics in the market likely to affect housing development in the Regional Livability Plan future provides a basis for the formulation

of policy to coordinate transportation The 2015 Regional Livability Plan (RLP), facilities with a sustainable pattern of written by the North Central Wisconsin residential development. Understanding Regional Planning Commission, addresses the factors affecting people’s ability to issues of livability in the areas of housing, meet their own housing needs provides a transportation, economic development, basis for reinforcing community ties, and land use. The RLP identifies a number fostering economic development and of issues affecting community livability environmental sustainability, and related to housing: improving the quality of life.

 An aging population, Previous Plans and Studies  Smaller household sizes, Related to Housing  A lack of housing options, and  An increase in housing costs related to While quality housing is an essential incomes. aspect of livability, there are few housing studies or plans at the local level. Two Housing Data plans, at the state and regional levels relate to housing in the area. The majority of the housing data in this section is taken from the WDOA, the Wisconsin State Consolidated Housing 2000 and 2010 U.S. Census and the 2016 Plan American Community Survey. While the census is a count, the American The Consolidated Housing Plan is Community Survey is an estimate. Surveys required by the Department of Housing are more accurate when used for larger and Urban Development (HUD) in the populations, and as the Town of Cassel is application process required of the state in a smaller community, it is likely that there accessing formula program fund of Small are minor errors present in the data. Cities Community Development Block Grants (CDBG), HOME Investment Partnerships, Emergency Shelter Grants, and Housing Opportunities for Persons with AIDS.

Town of Cassel 24 Comprehensive Plan 2018 Marathon County, Wisconsin Housing Characteristics all households are classified as being “1 person households,” an increase since Housing Type and Tenure 2000. Approximately 21% of town households have a householder 65 years or The 2010 Census shows the Town of older. Average household size is smaller Cassel has 322 occupied housing units. among renter occupied units (2.46) than 296 (or 92%) of these units are owner- owner occupied units (3.16). occupied. The town has an average household size of 2.83 persons. 16.8% of Table 4-1: Number of Housing Units by Type and Tenure

Area Cassel Marathon County WI

Total Housing Units 341 57,734 2,624,358

Total Occupied Housing Units 322 53,176 2,279,768

Owner Occupied Units 296 39,090 1,551,558

Renter Occupied Units 26 14,086 728,210

Average Household Size 2.83 2.49 2.43

% Owner Occupied 91.9% 73.5% 68.1%

% 1 Person Households 16.8% 25.8% 28.2%

% With Someone 65 years or older 20.5% 24.4% 24.0%

Source: 2010 Census DPDP1

Changes in Housing Stock Vacancy decreased from 5 to 4 percent between decades. The number of owner- Table 4-2 notes changes in the housing occupied housing units increased by 77 stock between 2000 and 2016 according to while the owner occupancy rate decreased U.S. Census Data. Total housing units slightly. This decrease has been seen have increased by 75 while the number of nationwide after the housing bubble in occupied housing units grew by 77. 2008.

Town of Cassel 25 Comprehensive Plan 2018 Marathon County, Wisconsin Table 4-2: Changes in Cassel’s Housing Stock

2000 2016 # Change % Change

Total Housing Units 289 364 75 26%

Occupied Housing Units (Households) 274 351 77 28%

Vacancy % 5% 4% - 1% Owner Occupied Housing Units 257 323 66 26% Renter Occupied Housing Units 17 28 11 65% Owner Occupied Housing Units as percent of Total 94% 92% - -2% Number of Homes for Seasonal/Rec Use 4 7 3 75% Number of Single Family Homes 272 356 84 31% *Detached 271 350 79 29% **Attached 1 6 5 500% Number of Duplexes 0 4 4 100% Multi-Family Units 3-9 units 0 0 0 0% Multi-Family Units 10+ 3 0 0 -100% 2000 Census SF-3, 2012-2016 American Community Survey DP04 * This is a 1-unit structure detached from any other house **In row houses (sometimes called townhouses), double houses, or houses attached to nonresidential structures, each house is a separate, attached structure if the dividing or common wall goes from ground to roof.

Housing Age Additional bedrooms, bathrooms, and attached garage space are among the The age of a community’s housing stock amenities found in newer housing units. typically reflects several important factors including size, offered amenities, and Table 4-3 shows housing age for the overall maintenance costs. Age of the community. In the Town of Cassel, data home often also reflects different regional shows that a significant portion of the and national trends in housing local housing stock, 28.3 percent, was development. Housing predating the built before 1939. Recent housing growth 1940s, for example, was typically smaller from the 1990s and 2000s also makes up a and built on smaller lots. In subsequent large group of housing at approximately decades, both average lot and home sizes 34.6 percent of the total housing stock. have continuously increased. In some That is slightly higher than overall figures cases this can be due to higher minimum for the county. The Census reports that lot and home sizes in zoning codes. homes built in the 1990s make up 14% of the county’s overall housing stock.

Town of Cassel 26 Comprehensive Plan 2018 Marathon County, Wisconsin Table 4-3: Age of Housing Stock in Cassel Year Built Total 2010 or 2000 to 1990 to 1980 to 1970 to 1960 to 1950 to 1940 to 1939 or Units later 2009 1999 1989 1979 1969 1959 1949 earlier 364 3 91 32 38 35 23 23 16 103 0.8% 25.0% 8.8% 10.4% 9.6% 6,3% 6.3% 4.4% 28.3% 2012-2016 American Community Survey DP04

Physical Housing Stock Most of the community’s housing stock is classified as being single family home, Table 4-4 looks at several select measures significantly higher than figures for the of physical condition and compares them county or state. Census data indicates that to figures for the county and state. The just over 1 percent of homes lack complete median home size in the Town of Cassel, kitchen facilities, slightly higher than the measured by the number of rooms, is county and state. larger than that of the county and state.

Table 4-4: Physical Housing Characteristics Characteristic (% of Total Units) Median 1 unit, detached or In buildings with Lacking complete Lacking complete Community Rooms attached 10 or more units plumbing facilities kitchen facilities Cassel 6.8 97.7% 0.0% 0.0% 1.1% Marathon County 5.9 78.9% 7.4% 0.4% 0.9% Wisconsin 5.5 71.1% 10.7% 0.4% 0.9% Source: 2012-2016 American Community Survey DP04

Town of Cassel 27 Comprehensive Plan 2018 Marathon County, Wisconsin Housing Values These factors include rent and mortgage payments, maintenance expenses, lot size, Median Value and required or desired amenities for the home. Household size and income are also Table 4-5 shows home value statistics for key factors contributing to what housing the community, county, and state. options are available and accessible to Specifically, the column to the right shows residents. In Marathon County, median the median (or middle value) of select and per capita income levels are generally owner-occupied homes for each specified lower than the state. For many people this area. This value includes only single- poses a difficulty in paying for decent, family houses that are located on less than safe, and sanitary housing. 10 acres. Additionally, this statistic only considers homes without a business or Statistically speaking, those spending in medical office on the property. Census excess of 30% of their total household data indicates that the Town of Cassel’s income on housing costs may be facing median home value was 16 percent higher affordability difficulties, also known as than the State of Wisconsin and 33 being cost-burdened. The U.S. percent higher than the county. Department of Housing and Urban Development (HUD) recommends that Table 4-5: Median House Value, 2016 rental-housing costs not exceed 30% of Community Median Value (dollars) the monthly income. Mortgage lenders are Cassel $194,000 more willing to make loans if the Marathon County $145,900 scheduled mortgage payment is less than Wisconsin $167,000 29% of the monthly household income. 2012-2016 American Community Survey DP04 Cost burdened households are also more

likely to become homeless.

Range of Values The percentage of households in the Town

of Cassel that are cost burdened is similar Table 4-6 shows the range of housing to that of the county and state among values that exist in the community Figures owner-occupants, while fewer renters in for the town are generally higher in the the town are cost burdened. The Census town when compared to the county. indicates that there are approximately 24

renter-occupied housing units in the Housing Affordability town.

Several factors impact the varied levels of housing affordability in Marathon County.

Table 4-6: Range of Housing Values, 2016 Cassel Marathon County # % # % < $49,999 4 1% 1.717 4% $50,000 to $99,999 19 6% 7,694 20% $100,000 to $149,999 75 23% 11,118 28% $150,000 to $199,999 72 22% 7,983 20% $200,000+ 153 47% 10,727 27% 2012-2016 American Community Survey DP04

Town of Cassel 28 Comprehensive Plan 2018 Marathon County, Wisconsin Table 4-7: Monthly Housing Costs and Cost Burdens

Owner Occupied Renter Occupied Median selected Median monthly owner Selected monthly renter costs1 costs1

With No Median Median % Cost % Cost Mortgage Mortgage Contract Gross Burdened Burdened rent rent Cassel $1,524 $569 19.2% $657 $1,154 29.2%

Marathon County $1,241 $476 20.4% $596 $704 42.6%

Wisconsin $1,391 $532 22.7% $664 $789 46.6% 2012-2016 American Community Survey DP04

Additionally, Table 4-7 shows that select well with existing neighborhoods or be town median owner-occupied costs, both developed as new communities. with and without a mortgage, are higher than the median figures for Marathon Senior Housing Needs County and Wisconsin. The same holds true for select renter costs. Gross rent in Wisconsin is aging. This rise of seniors Cassel is much higher than the state or creates a special set of housing issues. As county. Technical documentation from people age they have more need for the Census states that contract rent is the specialized services. The most obvious of monthly rent agreed to or contracted for, these is for health care, but there is a more regardless of any furnishings, utilities, subtle relationship between an aging fees, meals, or services that may be population and their housing needs. An included. For vacant units, it is the integrated view of senior housing needs to monthly rent asked for the rental unit at be developed that includes a continuum of the time of enumeration. Gross rent is the housing options ranging from assistance contract rent plus the estimated average to age in place all the way to assisted care monthly cost of utilities (electricity, gas, facilities. water and sewer) and fuels (oil, coal, According to research by the Department kerosene, wood, etc.) if these are paid by of Housing and Urban Development, the or for the renter. overwhelming majority of seniors prefer to “age in place” or remain in their home One of the most widely used and easily throughout retirement. This can be available forms of affordable housing is the difficult in rural areas for many residents manufactured home. Modern that are no longer able to access the manufactured housing is virtually necessary goods and services or keep up indistinguishable from site-built housing, with the property maintenance of larger but can be constructed for roughly 75 parcels. percent of the cost. Manufactured housing offers a realistic alternative for Strategies that promote and allow aging in providing affordable homes that can fit place can reduce the need for senior housing by allowing seniors to stay in

Town of Cassel 29 Comprehensive Plan 2018 Marathon County, Wisconsin their homes longer. These strategies people living on the streets, but it is often include strengthening transportation a more hidden problem, consisting of access to services and goods such as health people that have unstable housing, living care, assistance with household care and in shelters, staying with friends or family maintenance, and designing housing to temporarily, or living in a vehicle. Across serve the needs of the resident throughout the state, 14 percent of homeless students their life, such as visitable design and stayed in a shelter, 77 percent were universal design. For new housing these doubled up with friends or family standards may be incorporated into the members, one percent were unsheltered, zoning code, or negotiated in a developer and seven percent stayed in hotels. agreement. For retrofitting existing housing, the town can provide assistance The efforts of most organizations working to residents that need to upgrade their on preventing homelessness in Marathon homes to continue living in them. County are directed towards preventing people from becoming homeless. In the neighboring Village of Marathon Preventing homelessness is the preferred City, two organizations provide senior means of intervention, as it is less costly to housing and assisted living options. all involved, and it helps maintain Copperleaf Assisted Living and Parkview household stability. It is also widely Apartments are facilities which provide recognized that homelessness is often the trained staff, personal services, and social result of other problems such as housing activities for residents. Additionally, costs, unemployment, poor credit, mental Copperleaf provides dementia care, illness, domestic abuse, housing hospice, and rehabilitation services. discrimination and drug addictions. Vice versa, homelessness and housing Beyond the Village of Marathon City, insecurity can also cause many of the other senior housing options can be found aforementioned issues, such as throughout Marathon County. The unemployment, drug abuse, and mental Marathon County Aging and Disability illness. Resource Center, the Wisconsin Department of Health and Family Tight rental markets increase the Services, and the Marathon County likelihood of a family becoming homeless United Way all maintain a list of these for minor transgressions, or even for housing options. reporting unsafe housing conditions to officials. As such, providing an integrated Homelessness network of support is essential to address this complex issue. In some cases, better Data on homelessness is difficult to quality basic services such as housing collect. According to the Wisconsin assistance, schools, employment services, Department of Public Instruction, during and transportation can prevent the 2015/2016 school year the Marathon homelessness. To address these issues the City School District reported four Marathon County Housing and homeless students and the Edgar School Homelessness Coalition was created in District reported none. It is likely that 2012. Their mission is to raise awareness, there are more homeless children and find solutions, and eradicate adults that go unnoticed or uncounted. homelessness. Homelessness is often thought of as

Town of Cassel 30 Comprehensive Plan 2018 Marathon County, Wisconsin Assistance Programs  Housing Opportunities for Persons with AIDS Program (HOPWA) Below is a listing of some of the major programs utilized, including some more Wisconsin Department of details on major programs at the state and Administration, Division of Energy federal levels. Each year new programs are Services available.  Home Energy Assistance Program Wisconsin Housing and Economic  Low Income Weatherization Program Development Authority (WHEDA) Wisconsin Department of Agriculture,  Low Income Housing Tax Credit Trade and Consumer Protection (LIHTC)  Rental Assistance (Section 8) The Trade and Consumer Protection Programs Division is responsible for the  Multifamily Loan Fund investigation of unfair and deceptive  National Foreclosure Mitigation business practices and handles individual Counseling consumer complaints involving  WHEDA Advantage landlord/tenant complaints, and home  FHA Advantage improvement transactions.  First-Time Home Buyer Advantage  WHEDA Tax Advantage State Programs  WHEDA Foundation Grant Program

Wisconsin Department of Administration Wisconsin Department of

Administration, Division of Housing The Wisconsin Community Development

Block Grant (CDBG) program,  Housing Grants and Loans administered by the Wisconsin  Shelter for Homeless and Transitional Department of Administration, Division of Housing Grants Housing (DOH), provides grants to

 Wisconsin Fresh Start general purpose units of local government  Projects for Assistance in Transition for housing programs which principally from Homelessness benefit low and moderate income (LMI)  Homebuyer and Rehabilitation households. These funds are primarily Program used for rehabilitation of housing units,  Rental Housing Development Program homebuyer assistance, and small  Tenant-Based Rental Assistance neighborhood public facility projects. Program CDBG dollars are flexible and responsive  Emergency Solutions Grant Program to local needs.  Continuum of Care Supportive Housing Program In addition to addressing LMI housing  Housing Rehabilitation Program – needs, CDBG can be used to leverage other Small Cities Community Development programs or serve as a local match. The Block Grant (CDBG) grant also can be used as an incentive to  CDBG Emergency Assistance Program involve the private sector in local  Neighborhood Stabilization Program community development efforts or to

Town of Cassel 31 Comprehensive Plan 2018 Marathon County, Wisconsin respond to area needs. The CDBG are made to the nonprofit sponsors program often serves as a catalyst for (including the Housing Assistance other community development projects. Council and Habitat for Humanity International) of development projects The Low-Income Housing Tax Credit and are interest-free. Portions of the loans (LIHTC) aims to encourage the are forgiven if promised units of housing production and rehabilitation of are completed within a given period. affordable housing. It provides an These forgiven “grant conversion” funds incentive for private entities to develop may be used to subsidize future affordable housing. The credit reduces the development projects. federal taxes owed by an individual or corporation for an investment made in HOME Investment Partnership Program low-income rental housing. LIHTC aims to encourage the production and provides funding for the construction of rehabilitation of affordable housing. new buildings or the rehabilitation or HOME funds may be used for rental conversion of existing structures. To assistance, assistance to homebuyers, new qualify, a property must set aside a certain construction, rehabilitation, or acquisition share of its units for low-income of rental housing. households. Issues Federal Programs Rural Residential - The continued growth USDA-RD of rural residential in the Town of Cassel is a great concern to residents. This is A variety of loan programs are available to especially true in relation to the sporadic provide assistance in financing homes for location of new housing. Unplanned rural low-income households including the residential is likely to cause the Homeownership Direct Loan Program of fragmentation of farmland and forestland, the Rural Health Service, the Mutual Self- increasing the costs of farming and Help Housing Loan program, the Very- making agricultural land owners less Low-Income Housing Repair Program, the likely to invest in their properties. Rural Rental Assistance Program, and Rural Housing Preservation Grants. These Migrant Housing - Migrant housing is a funds are provided through approved concern as available units for workers lender organizations. Local approved employed by local farmers is in short leaders who can provide resources from supply. these program to qualified individuals include CoVantage Credit Union and Housing Affordability – A large River Valley Bank. proportion of renter households are cost burdened in the town. A smaller but still Department of Housing and Urban Development significant proportion of owner occupied (HUD) households are also cost burdened.

Self-Help Homeownership Opportunity Program finances land acquisition and site development associated with self-help housing for low-income families. Loans

Town of Cassel 32 Comprehensive Plan 2018 Marathon County, Wisconsin Goals, Objectives and Policies safe, clean, and decent housing for these workers. Goal 1: Locate new residential development in appropriate areas. Strategies and Actions

  Objective: Discourage development Identify a list of local employers who in natural, sensitive areas. utilize migrant workers.

 Contact employers of migrant workers  Objective: Guide new housing to locations where the extension of and express desire for them to also provide housing to these populations. service provision will be easiest to

deliver.

 Work with Marathon County and Policies other agencies to develop a seasonal housing plan for temporary residents.

 Direct new housing developments to Goal 3: Explore development of specific the most appropriate areas for accessory use requirements. residential development.

 Strategies and Actions Objective: Develop regulations for accessory uses to include formal public site approval procedures.  Observe the land use plan in siting

new residential development. Policies

 Determine limits of service provision  on a per-unit basis. The town requires all accessory uses to abide by the essence of its land use

designation. Goal 2: Provide appropriate housing

options for migrant workers. Strategies and Actions

 Objective: Identify areas where  Acquire accessory use regulations seasonal housing is most from other communities. appropriate.

 Determine appropriate accessory use  Objective: Work with farmers who restrictions for the Town of Cassel. utilize migrant workers, Marathon

County, and other appropriate  Present draft regulations to the agencies to develop an appropriate community for public comment. supply of housing.

 Adopt regulations as part of the Policies zoning code.

 The town desires all employers utilizing immigrant labor to provide

Town of Cassel 33 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Five Utilities & Community Facilities

This section describes the existing engineered foam peanuts bound in mesh conditions and issues relative to utilities or plastic chambers. available to the Town of Cassel, including sewage disposal, water supply, power On-site waste disposal systems generally supply, and telecommunication facilities fall into four categories: and services. It also describes existing conditions with regard to surface water  Conventional Systems – these systems management. include an absorption field that is buried under the natural ground level. Private Utilities These systems cannot be built in areas where soils do not allow percolation The Town of Cassel does not provide due to high clay content or bedrock public sewer or water service. All where groundwater is too near the development is on private wells and septic surface, or where soils percolate too systems. The town, which has its own rapidly and thus pose problems for zoning, requires a minimum lot size of 3 groundwater contamination. acres for installation of individual septic systems and wells.  Mound Systems – these systems include an absorption field that is constructed On-Site Waste Disposal Systems above ground, creating a “mound”. This type of system is generally used All development in Cassel uses on-site where clay soils, groundwater, rapid septic systems. Chapter 15 of the General permeability or bedrock prevent construction of conventional systems. Code of Ordinances for Marathon County requires private sewage systems on all  Mechanical Treatment Components – premises intended for human habitation these generally replace or augment the or occupancy that are not served by public septic tank component and may sewer. The county code incorporates by include aerobic treatment tanks and/or reference rules, regulations, and laws in self -contained artificial media or sand the Wisconsin Statutes and Wisconsin filters to clean the effluent prior to its Administrative Code governing private discharge into the soil absorption sewage systems. component. Types of Systems –Septic tanks can be steel, concrete, fiberglass or plastic, but  Holding Tanks - Holding tanks are they all must now be equipped with a considered the system of last resort and filter to prevent the movement of solids are only allowed if other types of septic out into the soil absorption component. systems cannot be used. Temporary In addition, rock in drainfields may now holding tanks (e.g., less than 2 years) be substituted with specifically

Town of Cassel 34 Comprehensive Plan 2018 Marathon County, Wisconsin are sometimes allowed in areas where Telecommunication Facilities and public sewer is approved for Services installation in the near future. Private companies, such as T-Mobile, Permit Requirements – The Marathon AT&T, Cellcom, TDS, and Charter County Department of Conservation, provide telecommunication services in Planning and Zoning (CPZ) reviews and Marathon County. The rural areas issues permits for private sewage systems. generally rely on satellite dishes for Soil and site evaluations are required to television and internet services. Large determine if the proposed septic system is portions of the Town of Cassel have no suitable for the specific property and wireline broadband available, and fixed location before a permit will be issued. If wireless broadband ranges from less than deemed necessary, floodplain and/or 3 Megabits per second (Mbps) to 24.99 wetland delineation may also be required Mbps. This limits the potential for prior to permit issuance. In addition, a internet based businesses, people who maintenance agreement must be work from home, or internet based submitted prior to permit issuance. All technological improvements and septic tanks installed on or after July 1, commerce for agricultural businesses. In 1980, are required to be pumped at least the Town of Cassel, there are seven once every three years. internet providers, including Frontier Communications, Cellcom, and Water Wells: All development in Cassel HughesNet. However, download speeds receives water from private wells. Wells vary greatly across the township. generally run deep due to high bedrock. Affordable, accessible, high speed internet Solid Waste Disposal: Residents of the service is vital to residents and businesses town contract privately for garbage and in Marathon County, including rural areas recycle collection services. like the Town of Cassel. Residents utilize high speed internet for communication, Electrical Utilities and Natural Gas education, telemedicine, entertainment, and home businesses, among other uses. The Town of Cassel receives electric Businesses require high speed internet to power from Wisconsin Public Service be competitive in a global economy. Corporation (WPS). Gas service is not available to residents at this time, and Solid Waste and Recycling many residents use liquefied propane (LP) tanks for heating fuel. Cassel is within the Residents in the Town of Cassel contract gas service territory of Wisconsin Public for solid waste disposal service privately. Service. According to the 2012 to 2016 Contracting at the town level may reduce ACS, 45 percent of Cassel residents use the costs of waste management to liquefied propane for heating fuel, 28 residents. percent use wood, and 15 percent use fuel oil or kerosene. Solid waste management is best dealt with in a hierarchical structure under the following hierarchy: reduce, reuse, recycle, waste to energy, incinerate, and landfill. Studies have shown that it is possible to

Town of Cassel 35 Comprehensive Plan 2018 Marathon County, Wisconsin significantly reduce the volumes of both declining over the last five years. The solid and hazardous waste generated by Marathon School District operates a K-8 the United States. elementary school and a high school. There is also a 1-8 parochial school in Likewise, recycling reduces the amount of Marathon City. Enrollment in the waste that might otherwise have to be Marathon City School District has disposed of in a landfill. Waste to energy, fluctuated in the last five years, increasing incineration, and gasification have proven slightly overall during that time period. to be effective as part of a larger waste disposal strategy. Land disposal is the Post-Secondary Educational Facilities least desirable means of managing solid and hazardous waste because the amount University of Wisconsin – Marathon of space they require and the dangers County (UW-MC) - UW-MC, located in associated with them create adverse Wausau, offers lower level effects to human and ecosystem health. (freshman/sophomore) college classes, Composting can help reduce food waste leading to a baccalaureate degree. and provide beneficial mulch or soil as a Associate Degrees are offered in Arts & byproduct. Sciences, and Bachelor’s Degrees are offered in Business Administration, The Marathon County Solid Waste General Studies, and Nursing, through Management Department is in charge of collaborative degree programs with UW waste management for non-hazardous Oshkosh and UW Stevens Point. solid waste. It consists of the 575-acre Enrollment in 2014-2015 was landfill, recycling programs, composting, approximately 1,100 students, down and waste-to-energy. The department slightly from the enrollment in 2002-2003 opened a household hazardous waste of approximately 1,300 students. collection facility in May 1997, where county residents can drop off hazardous Northcentral Technical College (NTC) - waste free of charge. NTC, located in Wausau, offers 40 one- and two-year programs and certificates in Community Facilities and Public business, technical, health and industrial Safety fields. Approximately 17,000 full- and part-time students attended classes in the 2013-2014 school year. Elementary and Secondary Schools In addition to the public schools, the The Town of Cassel is served by two Wausau area has a private college. public school districts: The western half Rasmussen College, located in Wausau, of the town is served by the Edgar School offers bachelor’s degrees, associate’s District, while the eastern half is served by degrees, certificates and diplomas in fields the Marathon School District. The Edgar like business, design, education, justice School District has an elementary and sciences, and nursing. middle school at 203 Maple Street and a high school at 203 Birch Street all located Libraries in the Village of Edgar. The high school is also located in Edgar. Enrollment in the The Town of Cassel is served by the Edgar School District has been slowly Marathon County Public Library system.

Town of Cassel 36 Comprehensive Plan 2018 Marathon County, Wisconsin The Edgar Branch Library, located on Hospitals Third Street in Edgar, has 2,046 square feet of space. The Marathon City Branch Two major hospitals serve the town. Library is located in a new 3,000 sq. ft. Aspirus Hospital is located in the City of facility built in 2010. The MCPL is a Wausau at 425 Pine Ridge Boulevard. member of the Wisconsin Valley Library Aspirus Hospital, formerly Wausau Service, providing access to materials Hospital, is a 321-bed facility that is a throughout the Wisconsin Valley Library multi-specialty regional health center system serving a 12-county region in north central Wisconsin. Ministry Health Care St. Police Clare’s Hospital is a 104-bed hospital and medical office complex located in the Police protection is provided by the Village of Weston. Marathon County Sheriff’s Department. In 2016, a telemedicine service, Astia Fire Health, was established in Marathon County. Astia is able to come to any home Fire protection is provided by a joint fire or business in Marathon County in their district with the Village of Edgar and the Mobile Medical Unit vehicle, MMU that Village of Marathon City. The town has is equipped to handle many different owning interest in one tanker. urgent care services and connect patients with a doctor via video chat. They're Emergency Response primarily used for urgent care, but patients can schedule doctor's Ambulance services are provided from the appointments too. Village of Edgar. There is also a First Responder program through the Village of Additionally, Ministry (Ascension) Saint Marathon City Fire Department. Joseph’s Hospital and Marshfield Clinic, located in the City of Marshfield, provide The Marathon County Sheriff’s regional medical services to north central Department Communications Division Wisconsin. Though further than Wausau provides E-911 Dispatch for all Police, Fire, and Weston, these facilities also serve the and Emergency Medical Services (EMS) town. agencies in Marathon County. The Communications Division services 84 user North Central Health Care (NCHC) – In agencies and also provides alert paging addition to the hospitals and clinics support for the Emergency Management described above, Marathon County is Office, District Attorney, and Medical served by NCHC, a public agency that Examiner’s Office. The users are served by also serves Langlade and Lincoln counties. a microwave linked repeater radio system, The NCHC main campus is located at consisting of a control center at the 2400 Marshall Street in Wausau. Sheriff’s Department and multiple radio Additional offices are located in Antigo tower sites spread throughout the county. (Langlade Health Care Center) and Merrill and Tomahawk (Lincoln Health Care Center). According to their web site, NCHC offers outpatient, day hospital, community support and inpatient services

Town of Cassel 37 Comprehensive Plan 2018 Marathon County, Wisconsin for mental/emotional problems; Parks vocational, life skill training, early intervention, housing and care management services for the Local Park and Recreation Facilities developmentally disabled; and assessment, individual and outpatient group The Town of Cassel does not own or counseling, intensive programming, day operate any public parks. hospital, referral for residential and inpatient treatment, and education for County or State Parks, Forest and Trails alcohol and other drug problems. Services for detoxification and for persons There are no Marathon County parks or suffering from problems with gambling forest units located in the Town of Cassel. addiction are also offered. Marathon County park facilities in the vicinity include: NCHC operates a nursing home (Mount View Care Center) that offers skilled Rib Falls County Park is located off CTH S nursing services at the main campus in at the intersection with CTH U. Rib Falls Wausau. This facility has a licensed Park is 315 acres with park facilities capacity of 320 and serves persons including an open shelter, toilet, well, and requiring either short term or long term children's play equipment. The majority skilled nursing care because of complex of the park is currently undeveloped and is physical needs, psychiatric and the temporary site of a county gravel pit neurological diseases, dementia or and asphalt plant. The park's main feature behavior problems is the Big Rib River, which flows through the park and over a dam and rapids, with Many town residents rely upon local an impoundment that allows for clinics including facilities in Marathon, swimming. The gravel pit is currently Edgar, and Mosinee. being developed as an artificial lake for recreational use. Child Care Rib Mountain State Park is located within There was no regulated child care the Town of Rib Mountain. The park's providers in the town, but several others main feature is Rib Mountain, which at in the Village of Marathon City and the 1,924 feet above sea level is one of the Village of Edgar are listed with the highest elevations in the State of Wisconsin Department of Children and Wisconsin. The park surrounds the Families. The YoungStar program is mountain and has the following facilities: Wisconsin’s child care quality rating and a picnic area with 65 tables, a camping improvement system. It also provides an area with 31 developed sites, 3 hiking online site tool to help families find child trails, a nature trail, and a downhill skiing care services. area with 12 runs.

Big Eau Pleine Park - Marathon County owns and maintains Big Eau Pleine Park, half of which is located in Green Valley and the other half in Bergen. Big Eau Pleine is the county's largest park, at 1,450

Town of Cassel 38 Comprehensive Plan 2018 Marathon County, Wisconsin acres located on a peninsula on the north Policies shore of the Big Eau Pleine Reservoir. Active recreation areas are concentrated in  Continue to provide sufficient services two main sites on the shores of the as desired by residents. reservoir. Park facilities include: campgrounds, picnic tables, grills, Strategies and Actions restrooms, Civilian Conservation Corps (CCC)-era shelters, drinking fountains,  Perform annual review of service boat launches, swimming beaches, play provision costs. equipment. The extensive trail system allows for cross-country skiing, hiking,  Communicate with surrounding and nature walks. Fishing is a popular communities the willingness to share activity. services/costs.

Park System Needs  Determine feasibility of sharing services and the degree to which The Town of Cassel has not identified any Cassel will retain control. park system needs. Recreational facilities in surrounding communities are adequate  Explore creating a services committee for resident needs. Accessible parks are to identify areas for consolidation, important for quality of life, social and sharing, or privatization. recreational purposes for residents, but may also increase residential development  Consider contracting at the town level pressure. for garbage and recycling pick up services. Issues Goal 2: Provide effective public safety There were no issues identified. services.

Goals, Objectives, and Policies  Objective: Work with the Marathon County Sheriff Department and the

Villages of Edgar and Marathon City Goal 1: Maintain current provision of to continue to provide effective services. police and EMS services.

 Objective: Perform annual budget Policies allocations to fund public services.

 Contract with appropriate entities to  Objective: Continue to find methods provide sufficient emergency service of cost sharing, such as equipment delivery. sharing, with surrounding

municipalities to increase the Strategies and Actions efficiency by which services are

provided.  Participate in long-term facilities and equipment planning with service- providing entities.

Town of Cassel 39 Comprehensive Plan 2018 Marathon County, Wisconsin  Annually review contracts with  Objective: Encourage proper funding service providers and evaluate delivery for state parks. of services. Policies  Participate in recruitment efforts, especially concerning fire and  Encourage appropriate development of emergency response, with providing public spaces throughout the region. agencies. Strategies and Actions Goal 3: Support state and county park system.  Encourage proper maintenance and upkeep of the existing county and  Objective: Encourage proper funding state park system. for maintenance of local Marathon County parks.  Communicate desires for recreational facilities and uses to the appropriate entities.

Town of Cassel 40 Comprehensive Plan 2018 Marathon County, Wisconsin

Town of Cassel 41 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Six Transportation

Background Previous Plans and Studies Related to Transportation Transportation is necessary for the effective movement of people and goods within and with connections outside of Public Transit-Human Services the town. Transportation is also critical to Transportation Plan development and land use. This chapter provides an inventory of the existing This 2014 plan analyzes service gaps and transportation facilities and services needs in public transit and human services within the town. transportation then propose strategies to address the gaps and needs. A five-year Transportation is a crucial component of work plan was written to cover 2014 livability and provides a basis for the through 2018. formulation of policy to coordinate transportation facilities with a sustainable Regional Livability Plan pattern of development. The existing network, from roads to rails, needs to be The 2015 Regional Livability Plan (RLP), coordinated to maximize efficiency for the written by the North Central Wisconsin overall system. The connection between Regional Planning Commission, addresses home and work is an important part of issues of livability in the areas of housing, any transportation system. transportation, economic development, and land use. The RLP identifies three The town is served by several state and major transportation issues. county trunk highways, which serve as the main thoroughfares of the  Modes of Transportation to Work – transportation system in Marathon The region’s workforce is extremely County. The town is located adjacent to dependent on the automobile. In 2012, two Wisconsin’s state highways. STH 29 over 80 percent of the region’s located along the northern edge of the workforce drove alone to work on a town, serves as the major east/west daily basis. Another 10 percent transportation corridor through the carpooled, leaving less than 10 percent region. STH 107 runs through the west for the non-automobile methods such side of the town serves as a north/south as walking, biking, and using transit. corridor through the area. Both provide The average commute time in the direct access into the town and STH 29 central sub-region, which includes serves as an entry gateway. CTH P, CTH Marathon County, was 18.7 minutes. N, CTH H, and CTH S also provide access throughout the town.  Age of Drivers in the Region – The region is seeing a change in the number of licensed drivers by age

Town of Cassel 42 Comprehensive Plan 2018 Marathon County, Wisconsin groups. Between 2004 and 2013, the Marathon County Functional / region saw a 20 percent decrease in Jurisdictional Highway Classification the number of drivers age 17 and age Study (1998) 19. During the same years, the region also had a 20 percent increase in This plan identifies and groups classes of drivers over age 65. These changes roadways that provide similar levels of mean communities will have a need for service. The plan recommended that the multimodal options for the younger unit of government having the greatest ages and options to increase safety as basic interest in the roadway’s function drivers age. would carry out the operation, maintenance, and improvement of the  Transportation Maintenance Cost – classified roadways. It is expensive to maintain the transportation infrastructure in the Wisconsin 29 Corridor Preservation region. The current reliance on fuel tax Plan, Abbotsford to Wausau and registration fees is inadequate, unstable, and may soon be outmoded. WIS 29 carries approximately 18,700 The inability to fund improvements vehicles per day between Abbotsford and and maintenance on transportation Wausau. One of the primary objectives of infrastructure will impact the ability the WIS 29 corridor preservation plan is to transport goods and provide safe, to ensure that this important highway reliable, and efficient roads. continues to operate safely and efficiently, and to protect the state's investment in Connections 2030 this important east/west route. By officially mapping and preserving the right This is Wisconsin's latest long-range, of way, the department can protect the statewide, multimodal transportation state's long-term investment in the plan. It identifies a series of system-level highway while providing local priority corridors that are critical to communities with information needed to Wisconsin's travel patterns and the state plan for future development. This study economy. will provide for future freeway conversion. No construction or design is scheduled. State Trunk Highway 29 Corridor Land Freeway conversion will take place as Use Review (1997) mobility or safety concerns warrant changes, and when funding is available. This plan was prepared by a multi- departmental team working with A preferred alternative under this plan communities along the STH 29 corridor in proposes a possible interchange or the western part of Marathon County. overpass at County Highway S, along with The primary goal was to identify some additional local roads to preserve recommendations to allow local access to local roads for properties that communities to protect STH 29 from currently directly access State Highway impacts related to unplanned growth. 29.

Town of Cassel 43 Comprehensive Plan 2018 Marathon County, Wisconsin moderate length, with more emphasis on land access than principal arterials.

 Collectors provide both land access service and traffic circulation within residential neighborhoods, commercial

Site of Possible Interchange or overpass at CTH S and STH 29 (southward areas, and industrial areas. The view from Town of Rib Falls along STH S). collector system distributes trips from Source: Google Street View, 2017 the arterials through the area to the local streets. The collectors also Road Network collect traffic from the local streets and channel it onto the arterial system. Functional Classification  Local Streets comprise all facilities A functionally classified road system is not on one of the higher systems. They one in which streets and highways are serve primarily to provide direct grouped into classes according to the access to abutting land and access to character of service they provide, ranging the higher order of systems. Local from a high degree of travel mobility to streets offer the lowest level of land access functions. At the upper limit mobility, and serve the through-traffic of the system (principal arterials, for movement on this system is usually example), are those facilities that discouraged. emphasize traffic mobility (long, uninterrupted travel), whereas at the All 17 miles of county road in the Town of lower limits are those local roads and Cassel are collector routes, while all 48 streets that emphasize access. miles of town roads in Cassel are local streets. WisDOT classifies the 11 miles of The functional classifications are generally STH 29 as a major arterial, and classifies defined as: the 4 miles of STH 107 as a collector route.

 Principal Arterials serve corridor Jurisdictional Classification movements having trips length and travel density characteristics of an Roads are commonly classified in one of interstate or interregional nature. two ways: by ownership or by purpose. These routes generally serve all urban Jurisdictional responsibility refers to areas with population greater than ownership of a particular road, while 5,000 or connect major centers of functional classification, as described activity, the highest traffic volumes above, identifies the road by the level of and the longest trip desires. service it provides.

Jurisdiction refers to governmental  Minor Arterials, in conjunction with ownership, not necessarily responsibility. principal arterials, serve cities, large For example, some state owned roads are communities, and other major traffic maintained by local jurisdictions. generators providing intracommunity Additionally, the designation of a public continuity and service to trips of road as a “federal-aid highway” does not alter its ownership or jurisdiction as a

Town of Cassel 44 Comprehensive Plan 2018 Marathon County, Wisconsin state or local road, only that its service volume of 14,000 in 2001 and 16,200 in value and importance have made that road 2013. eligible for federal-aid construction and rehabilitation funds.  STH 107 serves as the eastern boundary of the Town of Cassel. It is a Ownership is divided among the federal, major collector connecting Marathon state, and local governments. States own City and STH 29 to the north and STH over 20 percent of the national road 153 to the south. STH 107 AADT network. The federal government has volume north of CTH N was 3,300 in responsibility for about 5 percent, 1998 and 2,200 in 2001. The average primarily in national parks, forests, and daily traffic count was 2,900 in 2010. Indian reservations. Over 75 percent of the road system is locally controlled.  CTH N is an east-west major collector bisecting the town between north and In some cases, local municipalities are south. CTH N connects to STH 107 to responsible for conducting routine the east and STH 97 to the west. CTH maintenance and minor repairs on state N had an ADT count of 2,000 to 2,200 and federal highways within their in 2010. jurisdictional boundaries. In return, the state generally provides financing to those  CTH S is a north-south minor collector jurisdictions. However, major repairs and that connects to STH 29 to the north reconstruction are generally still the and STH 153 to the south. CTH S responsibility of the State Department of north and south of CTH N is offset Transportation. with CTH S merging with CTH N for a short distance. South of the The Town of Cassel has about 15 miles of intersection with STH 29, CTH S had state roads, 17 miles of county roads, and AADT volume of 700 in 2001 and 736 48 miles of town roads. in 2010.

Major Road Facilities  CTH H is a north-south major collector serving as the town’s western All major roads are summarized by boundary. The AADT north of CTH N functional classification, jurisdiction, and was 2,000 in 2001 and 3,500 in 2010. Average Daily Traffic count (ADT). Traffic The AADT volume south of CTH N volumes on most roads in the town have was 1,200 in 2001 and 1,400 in 2010. stayed relatively steady, increasing slightly between 2001 and 2010.  CTH P is an east-west major collector serving and the southern boundary of  STH 29 serves as the town’s northern Cassel. The average daily traffic count boundary with the Town of Rib Falls. in 2010 was between 430 and 490 in Major roads providing access STH 29 the township. include CTH S, STH 107 and CTH H. Four local roads have access to STH Road Maintenance 29. STH 29 is a four-lane divided principal arterial. Between CTH H Most town roads are gravel and the and CTH S, STH 29 had an ADT perception appears to be that they are in good to fair condition. The town uses a

Town of Cassel 45 Comprehensive Plan 2018 Marathon County, Wisconsin five-year improvement plan. The town  “6” and “7” = good condition does provide snowplowing service.  “8” = very good condition  “9” and “10” = excellent condition Large dairy farms have been expressed as a concern because of damage to the roads Table 6-1 shows pavement condition in from the number of large trucks Cassel. There were slightly fewer gravel transporting dairy products. roads in the town than there were in 2011, although they still make up a healthy Crashes majority of roads in Cassel.

Roads exhibiting a surface condition Crash data in this section is taken from rating at or below “fair” must be examined the Traffic Safety Council (TSC) Crash to determine what type of reconstruction Mapping program through the University or strengthening is necessary. Those roads of Wisconsin Traffic Safety and that are classified as graded earth roads Operations (TOPS) Lab. A high number of should be examined for structural crashes occurred on county and state integrity to ensure safe travel. The roads highways within the Town of Cassel. that display a surface rating of “good” or Most crashes mapped in Cassel between better will only require minimal 2001 and 2017 occurred along STH 29, preventative maintenance to promote safe with four fatalities resulting. Dozens of travel conditions. The median road these crashes resulted in property damage segment is rated as “fair” in the Town of or injuries. There were also several serious Cassel as of 2017. crashes along CTH H, CTH N, CTH P and CTH S, including five fatalities. Table 6-1: Summary of Pavement

Conditions Road Conditions Surface Type Miles Unimproved or Graded 0.00 The PASER system, which was designed Earth Road Sealcoat or Gravel Road 43.58 by the Transportation Information Center Asphalt and Concrete 18.96 of the University of Wisconsin-Madison, is the rating system used most by Surface Condition Miles Wisconsin communities. PASER rates Rating Failed 0.08 road surfaces on a scale of 1 to 10. This Very Poor 2.96 scale is broken down as follows: Poor 24.73 Fair 20.01 Good 7.61  “0” = failing Very Good 6.39  “1” and “2” = very poor condition Excellent 1.00  “3” = poor condition Source: WisDOT, 2017  “4” and “5” = fair condition

Town of Cassel 46 Comprehensive Plan 2018 Marathon County, Wisconsin Other Transportation Modes identified CTH N as a recommended route within the Town of Cassel. Pedestrian WisDOT rates the suitability of state and Everyone is a pedestrian at some point in county highways for bicycle travel, most their trip, even when walking from a recently in 2015. STH 29 and CTH N were parking spot to the final destination. rated as “High Volume, Undesirable,” There are no separate facilities for CTH H was rated as moderate conditions, pedestrians in the town. Pedestrians may and CTH P, CTH S, and STH 107 were share the road with motor vehicles, rated as “Best Conditions.” There are although many perceive that this is unsafe several parallel town roads that are gravel and undesirable. Paved shoulders and surfaced. Creating a bicycle routes system sidewalks may serve to improve both the along the town roads as alternatives to real and perceived safety for pedestrians. undesirable roads may improve bicycling in the town. According to crash data mapped by the TOPS Lab at the University of Wisconsin Transit – Madison, there have been no recorded pedestrian crashes in Cassel between 2001 There is no transit service currently available in the Town of Cassel. Elderly, and 2015. needy, and disabled transit service is Bicycle provided throughout the county through North Central Health Care (NCHC). The Bicycling is a very economical and efficient services include semi-fixed routes that are mode of transportation. All roads within scheduled, and demand services available the town are open to bicycles. However, with a 48-hour notice. perceptions of safety keep many people that would like to bicycle from doing so. Rail Providing safe facilities for bicycling usually attracts people to bicycle that No rail access exists in the Town of wouldn’t do so without those facilities. Cassel. Since Cassel is bordered by two villages, Edgar and Marathon City, there is the Airports potential for more bicycle traffic traveling There are two primary airports in the area: between these two areas than in many other rural areas.  The Central Wisconsin Airport (CWA) is a joint venture of Marathon The Bicycle & Pedestrian Plan for the Non- and Portage Counties. It is the only Urbanized Area of Marathon County, Wisconsin, airport within Marathon County or 1996 identified recommended bicycle neighboring counties that provides routes in Marathon County. These scheduled air passenger services. The recommended routes were based on traffic CWA is located east of Mosinee and counts and condition of pavement. accessible via I-39. The terminal has Formal action has not occurred to adopt been modernized and highway access these as designated bicycle routes. The reconstructed to be more convenient. Marathon County Bicycle and Pedestrian Plan

Town of Cassel 47 Comprehensive Plan 2018 Marathon County, Wisconsin  The Wausau Downtown Airport Marathon County issues driveway provides aviation service for the area permits and implements access and is fully equipped to receive large restrictions on all properties fronting a corporate jets, charters, and privately lettered county road. The County Trunk owned aircraft. Air charter, flight Highway Access-Driveway Policy addresses instruction, aircraft rental, as well as the requirements regarding culverts, aviation line services such as refueling access width, slope, visibility and spacing. are available. The policy is available through the Marathon County Highway Department. Land Use and Transportation Issues Access Management Maintenance - Determining, prioritizing, Wisconsin was one of the first states to and funding the maintenance of roads is a recognize the relationship between difficult process. A formal policy would highway operations and the use of help decision-making. abutting lands. Under Chapter 233, the WisDOT was given the authority to Farm Equipment - Large farm equipment establish rules to review subdivision plats often damages roads, which is of concern abutting or adjoining state trunk to the town. To address problem, highways or connecting highways. identifying methods to defray or share Regulations enacted by WisDOT costs of road repair due to large farm establish the principles of subdivision equipment should be discussed. review. They require new subdivisions to: (1) have internal street systems; (2) limit Vulnerable Users – The road network direct vehicular access to the highways should accommodate vulnerable road from individual lots; (3) establish building users, such as horses and horse drawn setbacks; and (4) establish access patterns carriages, bicycles and pedestrians. for remaining unplatted land. STH 29 Conversion – WisDOT has long Access to STH 29 is restricted to CTH H, term plans to convert STH 29 to a limited CTH S, and STH 107. The WIS 29 access freeway. This conversion will alter Corridor Preservation Plan intends to access in the town. The town should plan preserve right of way for future conversion for the eventual conversion by ensuring to a freeway. The preferred alternative the land near the potential interchange is includes a possible interchange or not built on. overpass at CTH S, along with some changes to adjacent local roads. There is Goals, Objectives, and Policies no construction scheduled to implement this plan. The town should plan for the Goal 1: Maintain local roadways. eventual conversion of STH to a freeway. If an interchange is constructed at CTH S,  Objective: Continue using an annual this may be a good location for some process of roadway analysis, such as highway oriented commercial PASER, to prioritize maintenance development. scheduling.

Town of Cassel 48 Comprehensive Plan 2018 Marathon County, Wisconsin  Objective: Work with surrounding  Increase enforcement of weight limits towns and municipalities to share on local roadways. road repair costs.  Determine local authority to levy fees Policies against individual property owners for excessive roadway damage.  The town will continue to maintain and update current transportation Goal 3: Explore development of local facilities. regulations for rural driveways.

Strategies and Actions  Objective: Update zoning/subdivision code to include  Perform biennial roadway evaluation. regulations that address access to roadways and stormwater drainage  Explore using free online software from private property. through WisDOT to streamline funding allocations for repair.  Objective: Explore development of a driveway ordinance to include  Hold public hearings to discuss location, grade, and distance from roadway condition and determine in- other driveways. need areas. Policies  Plan for the long term conversion of STH 29 to a limited access freeway.  The town will promote safe access from public roadways to private Goal 2: Limit taxes incurred by property. residents due to roadway damage from large farm equipment and trucks. Strategies and Actions

 Objective: Explore developing a  Collect examples of driveway retainer system for road or other ordinances from other communities. capital repairs that occur as a direct result of operating large farm  Determine local standards for equipment and heavy trucks on local setbacks, distances from other roadways. driveways, and other key features of the ordinance. Policies  Solicit public input concerning  Cassel will work for equitable proposed regulations. distribution of costs for roadway repair.  Adopt regulations as part of the zoning code. Strategies and Actions  To develop a formal application process for a driveway permit.

Town of Cassel 49 Comprehensive Plan 2018 Marathon County, Wisconsin

Town of Cassel 50 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Seven Economic Development

The condition of the local economy the agency that is responsible for directly influences local growth and maintaining that federal designation. As development, and therefore must be part of maintaining that designation, the considered when planning for a NCWRPC annually prepares a community’s future. Employment patterns Comprehensive Economic Development and economic trends generally occur on a Strategy (CEDS) report. The report regional scale. Oftentimes residents of one summarizes and assesses economic community work in another. Similarly development activities of the past year and changes in a major industry can impact present new and modified program jobs and growth far beyond the strategies for the upcoming year. community where the business is physically located. Key components from this regional level plan include an inventory of the physical It is therefore important to understand a geography of the Region and its resident local community’s economy in light of its population. Labor, income, and regional context. The following section employment data are reviewed as well as provides a brief overview of the economy an in-depth analysis of the economic in Marathon County, in terms of key status of the region. economic sectors and the regional labor force. A more specific description of Regional Livability Plan (RLP) employment trends, major local employers or industries, and where most residents of Economic Development is one of four the Town of Cassel work is also provided. elements included in the Regional Potential economic development Livability Report, adopted by the North opportunities and/or issues regarding the Central Wisconsin Regional Planning local economy are also identified. Commission (NCWRPC) in 2015. The Economic Development Assessment Previous Studies Related to Report, a component of the plan, looks in Economic Development detail at the economic health of the 10- county region and identifies trends and issues facing the local economy. The Comprehensive Economic Development Regional Livability Plan addresses three Strategy (CEDS) issues: the disparity between the available labor force and employment, the need for a Marathon County is one of ten counties living wage, and broadband internet included in the North Central Wisconsin access. The four economic development Economic Development District as goals of the plan are as follows: designated by the U.S. Department of Commerce, Economic Development  Goal 2: Ensure the future availability Administration (EDA). The NCWRPC is of a skilled and flexible workforce.

Town of Cassel 51 Comprehensive Plan 2018 Marathon County, Wisconsin include high unemployment despite  Goal 3: Support and develop a diverse employer needs in select industries, economic base ensuring economic resident concerns about jobs providing growth and resiliency. living wages and career advancement, and a strain on county services to unemployed  Goal 4: Support infrastructure needed residents. for economic development. Marathon County: A Next Generation  Goal 5: Develop tourism and the Talent Magnet knowledge-based economy into leading economic sectors. This report, developed by Next Generation Consulting, addresses the United Way LIFE Report question, “What will it take for Marathon County to be a destination for top talent?” The LIFE Report is a joint effort of As part of the research process, a Marathon County and the United Way. “handprint” for Marathon county was Its purpose is to provide a reference for developed to contrast the county’s assets the community to evaluate strengths and with other communities. According to the weaknesses and identify priority issues. study, Marathon County meets or exceeds The report, which is published every two the standards of its peer regions in five of years, serves as a tracking vehicle to show the seven measured indexes – vitality, how the community has changed over earning, cost of lifestyle, after hours, and time. Two of the sections of the report around town. The county falls short in focus on education and on the economic two categories – social capital and environment. learning. The report also identifies nine priority areas of focus to address moving The education report tracks childcare, forward. The top four priority areas were: kindergarten readiness, enrollment by racial and economic differences, school  Engage emerging leaders district expenditures, reading comprehension, mathematics proficiency,  Create green economy, e.g. industries high school graduation rates, and higher education. Challenges facing education  Create “next generation” businesses according to the 2013 report include limited access to child care in rural areas,  Develop a long-term funded plan. school district revenue cuts, an increase in economically disadvantaged students, and ALICE Report: Asset Limited, Income fewer residents attaining post-secondary Constrained, Employed education relative to state averages. This report, developed by the United Way The economic environment report tracks of Marathon County, describes the 31 many economic indicators including percent of households in Marathon employment, job satisfaction, income, County that are above the federal poverty unemployment, poverty, economic level (10 percent of households are below impacts of transportation, and tourism. the poverty level) but still struggle to Challenges facing the economic afford basic household necessities, or environment according to the 2013 report ALICE households. These households are

Town of Cassel 52 Comprehensive Plan 2018 Marathon County, Wisconsin largely employed but do not earn enough Key Economic Sectors in wages to meet the “household survival budget,” which does not allow for any In 2016, there were 76,624 jobs in savings. The report states that many Marathon County and the county had a ALICE households provide vital services, Gross Regional Production of $6.5 billion such as retail, health care, child care, and in 2016. Table 7-1 shows a select number security, but cannot make ends meet on of industries by employment in Marathon the income from these jobs. County in 2011 and 2016. In 2016, the Manufacturing Industry (NAICS 31) was It also breaks down the data by the the largest employment sector with 16,369 municipal level, and shows that 19 percent workers. Health Care and Social of the households in the Town of Cassel Assistance (NAICS 62) and Retail Trade are either below the federal poverty level (NAICS 44) were second and third with or are ALICE households, much lower 9,395 and 8,300 workers respectively. than the Town of Rib Falls and the Villages of Edgar and Marathon City. In terms of job growth, Mining, Quarrying, and Oil and Gas Extraction County Economic Environment (NAICS 21) was the fastest growing industry from 2011 with a growth rate 315 Originally, the Marathon County economy percent, adding 82 jobs. The was based on forest resources and Management of Companies and diversified agriculture. Increased Enterprises industry (NAICS 55) was population and infrastructure – railroads, second, employing an additional 1,973 roads and dams for power enabled the workers, a 274 percent increase. The third area to evolve beyond simple agricultural fastest industry was Arts, Entertainment, and logging operations. Resources that and Recreation (NAICS 71) increasing 51 once left the area unprocessed were now percent, or 378 workers. The transformed into finished products in the Management of Companies and county, providing employment Enterprises (1,973 jobs), Manufacturing opportunities and adding value in forest (1,458 jobs), and Health Care and Social products and agricultural processing. A Assistance (853 jobs) Industries added number of related manufacturing the most jobs overall. Administrative and operations grew up in the area, some Support and Waste Management and based on forest products and agricultural Remediation Services came in fourth, products, others supplying the existing adding 489 jobs. industries with fabricated metal products. As these industries progressed, so did It should be noted that the number of industries such as transportation, employees in certain sectors, particularly communications, public utilities, those workers engaged in Crop and government, trade, finance, insurance and Animal production, which includes real estate. forestry, may be understated because this information utilizes the Wisconsin DWD data; those who are self-employed or work in family businesses are not reflected in this data.

Town of Cassel 53 Comprehensive Plan 2018 Marathon County, Wisconsin Table 7-1: Jobs by Industry-Marathon County, 2011-2016 2011 2016 2011-2016 2011-2016 % NAICS Description Jobs Jobs Change Change 31 Manufacturing 14,911 16,369 +1,458 +10% 62 Health Care and Social Assistance 8,542 9,395 +853 +10% 44 Retail Trade 8,539 8,300 -239 -3% 90 Government 7,895 7,983 +88 +1% 52 Finance & Insurance 4,920 4,807 -113 -2% 72 Accommodation and Food Services 4,680 4,799 +119 +3% 42 Wholesale Trade 4,206 4,321 +115 +3% 23 Construction 2,882 3,106 +224 +8% 81 Other Services (Except Public Admin.) 3,204 2,888 -316 -10% 55 Management of Companies and Enterprises 719 2,692 +1,973 +274% 48 Transportation and Warehousing 2,407 2,330 -77 -3% Administrative and Support and Waste 56 1,734 2,223 +489 +28% Management and Remediation Services Total 71,424 76,624 +5,300 +7% Source: Economic Modeling Specialists International, 2017.3

Five industries lost jobs from 2011 to 2016. and Animal Production, d) Finance and Other Services except Public Insurance, e) Wholesale Trade, Administration (NAICS 81) lost 316 jobs, Utilities, and f) Retail Trade. These decreasing 10 percent. Retail Trade industries are a critical part of the (NAICS 44) decreased its employment by “economic engine” for a region, affecting 3 percent, or 239 jobs; while Finance and the growth and health of many dependent Insurance (NAICS 52) lost 113 jobs. sectors such as retail, transportation, Transportation and Warehousing construction, and local services. (NAICS 48) and Information (NAICS 51) lost 77 and 69 jobs respectively. In 2016, Marathon County generated 10.5 billion dollars in export revenue. Export Key sectors of a regional economy can be revenue is money received in the region identified by size, by growth or decline in through foreign and external domestic employment, or by the concentration of sources. Manufacturing was the highest the industry in the local area compared to export industry accounting for 4.8 billion the national concentration. An industry dollars, or 46 percent of total export that shows a higher concentration of revenue. Finance and Insurance was the employment than the national average is second highest export industry considered a “basic industry” and is accounting for over 1.4 billion dollars, or identified by a technique called “Location 14 percent of total export revenue. Health Quotient” analysis. Basic industries are Care and Social Assistance was the third those sectors that export a product or highest export industry accounting for service from the local community into the over $664 million. national or international economy. Basic industries in Marathon County include The ability to export goods and services is a) Manufacturing, b) Management of essential to the county’s economy as it Companies and Enterprises, c) Crop introduces new money to the economy,

Town of Cassel 54 Comprehensive Plan 2018 Marathon County, Wisconsin rather than simply circulating money that effect explains how much of the change in is already in the region. This influx of new a given industry is due to some unique revenue is redistributed throughout the competitive advantage that the region economy at local restaurants, suppliers, possesses, because the growth cannot be and retailers. explained by national trends in that industry or the economy as a whole. As a Job Growth result of the regions unique competitiveness, the county should Between 2011 and 2016, Marathon County continue to grow. added 5,300 jobs, an increase of 7 percent. The State of Wisconsin experienced a job Agricultural Economy growth of 6 percent and the nation which increased 9 percent. Based on National The Marathon County agricultural Growth Effect (6,282), an Industry Mix economy contributed 821 million dollars Effect (-543), and the Competitive Effect to the county’s income, or 12.1 percent of (-539) the county would expect to add the county’s income in 2012. The Crop and 5,739 jobs in this industry over the next Animal Production (NAICS 11) provided ten year time period based on a shift share employment for 2,167 persons in 2016. The analysis. county’s top commodities in 2012 were milk ($249.8 million), grain ($78.8 While a location quotient analysis million), and Cattle ($40.1 million). provides a snapshot of the economy at a Twenty-two plants process milk in the given time, shift-share analysis introduces county providing jobs. trend analysis (change over a period of time). This is an analysis technique that There are 485 farms in the county. Forty- examines economic change and eight percent of the county’s land, or incorporates a “what-if” component. The 479,045 acres, is devoted to agricultural theory behind shift-share is that local production. This is an 18.31 percent economic trends can be determined to be reduction in farmland since 1987. In 1987, “up “or “down” relative to national trends, an acre of farmland was valued at 751 called the National Growth Component. dollars, while in 2012 an acre was valued It also identifies if the growth is in fast or at 2,916 dollars. slow growing industries or sectors, call Industrial Mix; and finally, it identifies The average age of farm operators has how competitive an area is for attracting been increasing, and a large number are different economic sectors, called the near or over the typical retirement age. Competitive Share. Both models use the Many operators that wish to retire have same employment data. difficulty finding replacements due to the high capital investment required. High The industrial mix effect represents the capital investment costs and the need for share of regional industry growth more training and education reduces the explained by the growth of the specific accessibility of farming to young people industry at the national level. The national and new farm operators. The number of growth effect explains how much the dairy farms has decreased in the county, regional industry’s growth is explained by while the average herd size has increased, the overall growth in the national reflecting the consolidation and growth of economy. The regional competitiveness large farm operations. Larger farm

Town of Cassel 55 Comprehensive Plan 2018 Marathon County, Wisconsin equipment has also placed more stress on and Schofield, the Villages of the local transportation network. Kronenwetter, Weston, Marathon City, Rothschild, and Mosinee, and the Town of Local Economic Environment Rib Mountain) for work, 20 residents travel to Marshfield, and 16 residents Many local jobs in Cassel are on local travel to the Town of Marathon. Of the farms. Those who are employed in non- 287 residents travelling to the Urban farm jobs work mostly in Marathon, Wausau region for work, 74 of those Wausau and Marshfield. Table 7-2 workers travel to neighboring Marathon illustrates resident employment City. In total, 177 people who worked in information for the Town of Cassel. As of Cassel in 2015 lived outside the township. 2015, 287 residents travel to the urban 493 Cassel residents traveled outside the Wausau Region (the Cities of Wausau township to commute to work in 2015.

Table 7-2: Jobs by NAICS Industry Sector, Town of Cassel 2015 NAICS Industry Count Share Transportation and Warehousing 72 39.3% Agriculture, Forestry, Fishing and Hunting 45 24.6% Wholesale Trade 36 19.7% Manufacturing 10 5.5% Public Administration 9 4.9% Retail Trade 5 2.7% Construction 3 1.6% Professional, Scientific, and Technical Services 2 1.1% Other Services (excl. Public Administration) 1 0.5% Total 183 100.0% Source: Longitudinal Employer-Household Dynamics Program (LEHD), 2015

Town of Cassel 56 Comprehensive Plan 2018 Marathon County, Wisconsin

Worker Inflow & Outflow in the Town of Cassel. 177 workers in Cassel commuted from outside the township to work, while 493 Cassel residents leave the township for work. Source: LEHD, 2015 Issues In 2015, there were 183 people employed in the Town of Cassel. The largest industry There were no significant issues employer was the Transportation and identified. Warehousing which had between 50 and 100 jobs. B&K Trucking is one of the largest businesses in the town, which Goals, Objectives, Policies, specializes in transporting flatbed and Strategies and Actions stepdeck freight. Goal 1: Strengthen the viability of the The second largest industry employer was local agricultural economy. the agriculture industry which employed about 45 people, although this figure does  Objective: Explore the development not include farm operators. A number of of niche markets for agricultural farms are scattered throughout the products (e.g. organic/hydroponic). township. Wholesale trade was the third largest employer.  Objective: Encourage secondary business development, such as outdoor markets or canneries, around the agricultural economy.

Town of Cassel 57 Comprehensive Plan 2018 Marathon County, Wisconsin  Objective: Work with Marathon Goal 2: Maintain access to local goods County and other agencies such as and services. the UW-Extension, to explore regional approaches to aiding the  Objective: Support local commercial agricultural economy. corridors in Villages of Edgar and Marathon City. Policies  Objective: Work with the Villages of  Encourage efforts to increase research Edgar and Marathon City to develop and learning in the area of a long term, area strategy to promote strengthening the long-term viability local goods and services. of agriculture within the region. Policies Strategies and Actions  Work with the Villages of Edgar and  Take an active role in regionally based Marathon City in strengthening agricultural forums and programs. commercial and service development within the area.  Encourage agricultural operators in the town to participate in regional Strategies and Actions programs aimed at improving the agricultural economy.  Work with surrounding communities to develop a mutually beneficial  Review town ordinances to ensure “regional” business plan that allows that they allow secondary agricultural each community to attract the businesses within the town. commercial development they desire.

 Encourage residents to patronize local establishments for goods and services.

 Coordinate with communities interested in establishing a local festival.

Town of Cassel 58 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Eight Land Use

The Town of Cassel is located between resources, and contribute to the safety, the Villages of Edgar and Marathon City, health, and prosperity of Marathon south of STH 29. Agricultural land uses County’s communities. The Farmland dominate the landscape. The second Preservation Plan identifies 15 year growth largest land use in the town is woodlands. areas and farmland preservation areas for each town within the county. Farmland Previous Studies Related to Land preservation areas are generally around Use prime farmland and existing productive agricultural areas. This plan forms the basis for Farmland Preservation Tax Regional Livability Plan (RLP) Credits.

Land Use is one of four elements included Marathon County Comprehensive Plan, in the Regional Livability Report, adopted 2016 by the North Central Wisconsin Regional Planning Commission in 2015. The Land The Marathon County Comprehensive Use Assessment Report, a component of Plan is a policy plan. The overall goal of the Plan, looks in detail at the land uses the Comprehensive Plan is to add a through the 10-county region and county-level perspective and planning identifies trends and issues facing land direction that complements and use. The Regional Livability Plan strengthens local planning efforts, as well addresses two issues: housing density and as provide guidance to the communities farmland preservation. The two land use within Marathon County. The plan goals of the Plan are as follows: describes existing and future land uses, and regulatory tools for land use.  Goal 9: Preserve and protect the region’s landscape, environmental resources, and sensitive lands while Current Pattern of Land Use encouraging healthy communities.  Goal 10: Manage and reduce vacant Marathon City is located on the eastern land and structures. border of Cassel, and the Village of Edgar is located on the western border. The Marathon County Farmland majority of single-family residential Preservation Plan, 2013 development is concentrated in these areas. Other single-family residential The purpose of the Farmland Preservation homes are scattered throughout the town, Plan is to guide and manage growth and mainly on major roads. There are no development of land use in a manner that known multi-family developments in the will preserve the rural character, protect town. the agricultural base and natural

Town of Cassel 59 Comprehensive Plan 2018 Marathon County, Wisconsin Agriculture uses occupy the majority of Existing Land Use land in Cassel. There are limited commercial or industrial land uses in the Table 8-1 illustrates the existing land and town. Those are located on or near major describes land use categories. Note, the highway STH 29 and CTHs S and N. acreage and percentage of land shown on Table 8-1 were determined from aerial photos and are not intended to be accurate to the parcel level.

Table 8-1: Existing Land Use in the Town of Cassel, 2015 Description % of Total Land Use Acres Land Area Tilled agriculture, prime farmland, pasture, Agriculture agricultural related structures, farm residences, 12,398 59% limited scattered rural residential. Forested land, tree nurseries, paper forests, Woodlands forested wetlands, limited scattered rural 4,172 20% residential. Open land in wooded areas, along streams, Open Lands 3,000 14% prairies and savannas, wetlands. One family structures, multiple family structures Residential with three or more households, condos, 701 3% duplexes, townhouses, subdivisions. Airports, highways, road right-of-ways, railroads, Transportation 655 3% logging roads. Open waters, such as lakes, ponds, streams, Water 133 1% rivers, and reservoirs. Retail stores, coffee shops, taverns, restaurants, truck stops, gas stations, farm coops, farm implement dealerships, clinics, automobile Commercial 81 0% dealerships, business offices, motels/hotels, offices, telephone/gas company, business incubators, etc. Schools, churches, cemeteries, town halls, fire Governmental / Institutional 12 0% departments, community centers, etc. Total Acres 21,152 100% Source: Marathon County Land Use Cover Database 2015, Aerial Photo Interpretation by NCWRPC

Current Land Use Plans and classifications of land use, however, A-1 Regulations agricultural dominates with small sections of C-1 commercial and M-1 Manufacturing. There is also a section Land Use Plan near the Village of Marathon City that is RS residential. The Town of Cassel completed a Comprehensive Plan in 2005 and this Shoreland Zoning document is an update of the Comprehensive Plan. Shoreland, shoreland wetlands, and floodplain regulations are applicable in all Zoning geographic areas of the county. Wisconsin law mandates Counties to adopt and The Town of Cassel regulates zoning administer a zoning ordinance that within its borders. There are 22 regulates land use in shoreland/wetland

Town of Cassel 60 Comprehensive Plan 2018 Marathon County, Wisconsin and floodplain areas for the entire are of under a 25- or 50-year contract, and the county outside of villages and cities. public access for hunting and fishing The shoreland/wetland and floodplain activities. Current contracts will continue area covered under this zoning is the area until their expiration dates. This land is that lies within 1,000 feet of a lake and typically shown in plat books to identify within 300 feet of a navigable stream or to locations. Land set aside under the FCL in the landward side of a floodplain, Marathon County is often owned by whichever distance is greater. forest products companies, although many individuals also own large enough parcels Related Programs to participate.

Farmland Preservation Program The MFL was enacted in 1985 and requires at least 10 acres of contiguous The State of Wisconsin has a Farmland forest land. Due to the smaller acreage Preservation Tax Credit Program. The requirement, many individual landowners goals of the program are twofold: to take advantage of the MFL. Landowners preserve Wisconsin farmland by means of may close to public access up to 320 acres local land use planning and soil of their forest lands set aside under MFL. conservation practices and to provide The remaining program acres must be property tax relief to farmland owners. open to public access for hunting, fishing, Landowners keeping land in agricultural hiking, sight-seeing and cross-country use can claim a credit on their state skiing. Landowners must choose a 25- or income taxes. See the Marathon County 50-year contract. The landowner pays an Farmland Preservation Plan for more Acreage Share Amount as part of their tax information. bill in lieu of taxes. If the land is withdrawn from MFL prior to the Forest Crop Law (FCL) and Managed Forest Law contract period it is subject to a (MFL) withdrawal tax.

With a large amount of forest land in the Brownfield Redevelopment county, forest tax laws have a major effect on land uses. The tax laws require 25- to Pursuing funding from state agencies for 50-year contracts, so they are a good redevelopment of contaminated sites can indicator of the amount of land that is reduce the uncertainty that otherwise intended to remain undeveloped for the prevents contaminated properties from near future. being redeveloped. Action by the town to evaluate contaminants or begin In the state, over 2.6 million acres are remediating the property is often enrolled under the FCL and the MFL. necessary before the private sector will is Because high taxes had encouraged the willing to invest in redevelopment. While cutting of timber for revenue, the laws this may require some upfront investment were developed to encourage better forest from the community, property values management and provide tax relief to the around the redeveloped properties often woodland owners. Land set aside under increase and it reduces the conversion of the FCL (which was combined into the land from agriculture and woodland uses. MFL in 1986) required at least 40 acres in one quarter-quarter section, set aside

Town of Cassel 61 Comprehensive Plan 2018 Marathon County, Wisconsin Table 8-2 shows current estimates of land or sociopolitical reasons. It is noted that set aside under the FCL and MFL 2.7 acres of this “available” land is in programs. It is noted that information on public ownership, thus making it MFL land is not readily available since essentially “unavailable” for development. landowners select various acreage amounts and may have both closed or Development is somewhat limited by the open land. These acreages do not enrollment of properties into tax incentive correspond with the parcel boundaries, programs to maintain existing use/cover and thus are not mapped. As shown in under the managed forest law, the forest Table 8-2, there are no acres of land crop law, and farmland preservation. estimated to be currently enrolled in the FCL program and about 161 acres enrolled Land Values in Management Forest Laws programs in the town. Table 8-3 indicates the change in assessed land values between 2008 and 2016 for Table 8-2: Land in Forest Preservation various types of land use in the Town of Programs (in acres), 2002-2016 Cassel. It also indicates percent change in Managed acreage and land value for the town. Forest Managed Forest Between 2008 and 2016 the number of Crop Forest Law Law acres assessed as residential land Law (MFL) (MFL) Year (FCL) closed increased by 31. At the same time, the open amount of land in Agriculture decreased 2002 40 60 80 2016 0 0 161 by over 24 acres and the amount of Change -40 -60 +81 undeveloped land decreased 40 acres. % -100% -100% 100% This likely reflects the conversion of some Change Source: Data compiled by local assessors with Municipal Board of Review farmland to rural residential uses and changes made in the classification of land from agriculture. Development Trends Major Opportunities and Land Supply Constraints

Agriculture, forested, and open lands may be considered available for development. Lack of Effective Development Nearly 19,600 acres of land in the town are Regulation Tools considered agriculture, forested, or open lands. This does not indicate that current The community likes the local zoning land owners are willing to sell or develop control, but is not sure if has been their land. Much of this land may also be effective in slowing the growth of rural undevelopable, due to environmental residential. constraints or other physical, geological,

Town of Cassel 62 Comprehensive Plan 2018 Marathon County, Wisconsin

Table 8-3: Change in Assessed Land Value (per acre) 2008 – 2016 Change % Change Land Classification Characteristics in Cassel 2008 2016 2008 - 2016 2008 - 2016 # of Acres 621 652 31 5.0% Residential Parcel Count 252 260 8 3.2% Per Acre Land Value $4,970 $4,946 $-23.74 -0.5% # of Acres 36 36 0 0.0% Commercial Parcel Count 13 12 -1 -7.7% Per Acre Land Value $4,353 $4,483 $ 131 3.0% # of Acres 12,181 12,157 -24 -0.2% Agriculture Parcel Count 514 533 19 3.7% Per Acre Land Value $174 $186 $12.07 6.9% # of Acres 923 853 -70 -7.6% Forest Parcel Count 65 66 1 1.5% Per Acre Land Value $1,785.48 $1,797 $11.47 0.6% # of Acres 2,970 3,036 66 2.2% Agricultural Forest Parcel Count 256 260 4 1.6% Per Acre Land Value $898 $898 $-0.12 0.0% # of Acres 3,406 3,366 -40 -1.2% Undeveloped Parcel Count 390 404 14 3.6% Per Acre Land Value $382 $388 $6.26 1.6% # of Acres 401 400 -1 -0.2% Other Parcel Count 137 136 -1 -0.7% Per Acre Land Value $3,862 $3,880 $17.65 0.5% # of Acres 20,538 20,500 -38 -0.2% Total Parcel Count 1,627 1,671 44 2.7% Per Acre Land Value $610 $623 $12.77 2.1% Source: Wisconsin Department of Revenue, Statement of Assessment

Town of Cassel 63 Comprehensive Plan 2018 Marathon County, Wisconsin Future Land Use taken from assessment data and existing land use for these calculations. Household The Town of Cassel Future Land Use Map projections were used to estimate future illustrates the anticipated future pattern residential land demand, with an of land uses. The map includes twelve land assumption of an average density of three use categories to guide where new acres per unit. Past trends were used to residential and non-residential estimate the amount of land needed to development should be encouraged to accommodate future non-residential locate or where development should be development over the next 20 years. Table discouraged. Descriptions of each land use 8-4 shows estimates for land use between category and the number of acres within 2020 and 2040. each category are provided in Table 8-1. It is estimated that over the next 20 years Land Needs about 99 acres will be needed to accommodate future residential Projections of future household growth in development. Potential locations for Cassel are provided in the Demographics future residential are identified on the chapter. Existing land use estimates were Future Land Use Map.

Table 8-4: Land Use Projections, 2020-2040 Estimated Total Land Used by Year (Acres) 2020 2025 2030 2035 2040 Agricultural 12,382 12,364 12,350 12,338 12,332 Residential 734 770 797 821 833 Nonresidential 81 81 81 81 81 Source: Determined from NCWRPC and Marathon County projections appropriate. For example, the Consistency between Land Use and development of a single family residence Zoning or a multi-family building would both be consistent in an area designated as Land use and zoning designations are residential. Zoning categories, on the related, but not necessarily identical. Land other hand, are specific to each parcel. use categories tend to be fairly general, whereas zoning districts regulate specific Consistency between land use and zoning land uses and development requirements. is required by state statutes. This Because the land use categories are requirement generally occurs when a general, it is common for more than one community is considering a proposed zoning district to correspond to each land zoning change. The decision to approve a use category. It is also possible that some zoning change must be based on the zoning districts will be consistent with adopted comprehensive plan, and more than one land use designation. specifically, the future land use map. Additionally, although the Land Use Map Generally, if the requested zoning is shows parcel lines, the future land use consistent with the land use designation categories are not expected to precisely on the property, it should be approved, follow parcel lines, but instead show unless unique circumstances indicated the general areas where certain land uses are rezoning would negatively impact

Town of Cassel 64 Comprehensive Plan 2018 Marathon County, Wisconsin surrounding properties or the community. Goals, Policies, and Objectives If a rezoning request is not consistent with the land use designation, the Goal 1: Update current zoning community should consider denying the regulations to reflect the desires of the rezoning request. community to remain agricultural.

In situations where a rezoning request is  Objective: To implement zoning not consistent with the land use measures, such as conservation designation - but the community believes subdivision regulations, that would the requested zoning is appropriate in the preserve natural and agricultural specific location and would benefit the areas. community - the zoning change can be approved, however, the land use map  should be amended accordingly to Objective: Identify areas where rural establish land use and zoning consistency. residential development is most The process for amending the land use appropriate and direct growth to map is discussed in greater detail in the that area by zoning it accordingly. implementation chapter.  Objective: To consider a larger minimum residential lot size (eg. 5 Issues acres).

 Improve Development Regulations - Policies There is a need to “beef up” the zoning code for the town especially as it  Cassel will review zoning regulations relates to rural residential on a periodic basis for update. development. Environmental protection is also a key issue. Strategies and Actions

 Commercial District designation will  Work with community residents to help identify where business should update the land use plan on a periodic locate. A concentration on agri- basis to ensure private property rights. business is preferred.  Review residential development  Mega-Farms - The town would like to zoning standards to determine if discourage further large farm changes in minimum lot size or other operations from starting up, as there standards would help preserve active are concerns with odor, pollution, and agricultural land. damage to roads from farm equipment. Establishing a retainer system for road  Explore developing a planned unit repair might be an option. development (PUD) ordinance to enable and locate large developments that meet review approval, to develop in appropriate areas.

Town of Cassel 65 Comprehensive Plan 2018 Marathon County, Wisconsin Goal 2: Identify where a commercial Goal 3: Discourage the development of district should be located. mega-farms.

 Objective: To direct commercial  Objective: To work with Marathon development to areas that contain County to identify regulatory appropriate infrastructure. measures to influence the size of farm operations.  Objective: To zone contiguous land as commercial. Policies

 Objective: To develop a site plan  The town will oppose the review process for commercial development of large mega-farm development. operations within its jurisdiction.

Policies Strategies and Actions

 The town will direct all proposed  Express concerns about large mega- commercial development to those farm operations to members of the areas identified as appropriate for county board, local legislators, and commercial use. other individuals in a formal letter or public meeting. Strategies and Actions  Contact UW-Extension, Marathon  Assemble a commercial development County and other agencies to collect committee to interact with developers information on the impacts of mega- and recommend proposals to the farms for local distribution. board. Goal 4: Preserve prime agricultural land.  Determine access capabilities of local roadways and highways for  Objective: To discourage conversion commercial development and of active farmland to rural determine best locations for residential lots. development given current traffic flow patterns.  Objective: Explore programs, such as the Conservation Reserve Program,  Conduct a poll or public listening that seek to maintain prime soils session to solicit community opinion and cropland. for creating and locating a commercial district. Policies

 Determine types and appearances of  The town will support the commercial development desired and preservation of active agricultural tailor commercial regulations to reflect lands. these desires.

Town of Cassel 66 Comprehensive Plan 2018 Marathon County, Wisconsin Strategies and Actions  Explore working with Marathon  Contact local agencies, including UW- County, or local communities to host a Extension, to acquire pamphlets and workshop on agricultural other informational materials on preservation. agricultural preservation tools.

Town of Cassel 67 Comprehensive Plan 2018 Marathon County, Wisconsin

Town of Cassel 68 Comprehensive Plan 2018 Marathon County, Wisconsin

Town of Cassel 69 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Nine Intergovernmental Cooperation

This analysis presents an inventory of Local and Regional Level existing mechanisms that the Town of Cooperation Cassel uses to coordinate with other units of government, including: Marathon County, adjacent towns, the school Shared Services district, the State of Wisconsin and the federal government. The purpose of this Fire and Emergency Response analysis is to identify the existing cooperative mechanisms and summarize Fire protection is provided by a joint fire the major challenges and issues regarding district with the Village of Edgar and the intergovernmental cooperation and Town of Marathon. Ambulance services regional planning, including are provided through the Village of Edgar.

 Opportunities to reduce or eliminate Utilities- There are no shared utilities duplication of services contracts

 Incompatible goals, policies and Cooperative Practices development Village of Marathon City /Village of Edgar  Mechanisms for conflict resolution – The Town of Cassel and the Village of Edgar cooperate with the Village of  Opportunities for joint planning and Marathon City to provide fire protection decision-making and Emergency Medical Services (EMS). There are also agreements in place for road Mechanisms for cooperation and maintenance. coordination primarily take the form of intergovernmental agreements, leases and Surrounding Towns contracts, and regulatory authority. These can occur between the Town of Cassel  Town of Marathon – minor road and other local, regional, state or federal maintenance entities. Following is a brief description  Town of Emmet – minor road of the various functional areas and services maintenance that require intergovernmental  Town of Wien – minor road coordination at various levels. maintenance  Town of Rib Falls – minor road maintenance

Town of Cassel 70 Comprehensive Plan 2018 Marathon County, Wisconsin School District Existing or Potential Conflicts

No special agreements currently exist Annexation with the Marathon School District or the Edgar School District In Wisconsin, neither incorporated municipalities nor towns can initiate Marathon County annexation. The process is driven by individual property owners (or The county provides several services to developers) who petition for annexation the town including: law enforcement into a city to receive sewer and water through the Sheriff’s Office, 911 dispatch service. While towns often view service, access permits, maintenance and annexation as a means to take their improvement of county highways, territory, cities and villages view planning and permitting oversight annexations as a means to provide a more regarding shoreland, wetland and logical pattern of development and floodplain regulation, private sewage efficient provision of services. Cassel is system regulation, and animal waste and adjacent to both the Village of Marathon manure management. The county also City and Village of Edgar and residents provides oversight on compliance with feel annexations will need to occur as county soil and water conservation policy these villages grow. At the same time, the for the Farmland Preservation Program. town is wary of losing land as it makes it difficult to provide current services Regional Agencies without the tax revenue that is lost due to annexation. The NCWRPC provides planning and mapping assistance. Goals, Objectives, Policies, Strategies and Actions State and Federal Level Cooperation

State and Federal Agencies Goal 1: Maintain appropriate tax base to provide minimum service levels. The town has little direct contact with state or federal agencies. However state  Objective: Work with the Villages of agencies regulate certain activities such as Marathon City and Edgar to prevent access onto state roads, shoreland, large annexations that would floodplain and wetland zoning oversight, negatively affect the tax base of the navigable waters protection, compliance township. with water quality standards, farmland preservation tax credits and managed  Objective: Develop boundary forest tax credit programs. agreements with the Villages of Marathon City and Edgar to determine the extent of future growth into the township.

 Objective: Analyze future developments for their impact on the community’s tax base in relation

Town of Cassel 71 Comprehensive Plan 2018 Marathon County, Wisconsin to the services that they would Goal 2: Maintain good relations with require. local, regional, and state agencies.

Policies  Objective: Work with the WisDOT on road, highway and bridge  Cassel will seek to maintain sufficient reconstruction projects. tax base to continue to provide necessary services to its residents.  Objective: Continue good working relationship with Marathon County Strategies and Actions Sheriff’s Department.

 Stress with the Villages of Marathon  Objective: Continue good working City and Edgar the importance of relationship with the Villages of communicating annexation plans and Edgar and Marathon City for requests with the town. emergency services.

 Determine community support for Policies boundary agreements with the surrounding villages to help maintain  The Town of Cassel will continue to current town size. work with intergovernmental agencies concerning important local interests.  Perform a feasibility analysis to determine residential property Strategies and Actions thresholds to maintain sufficient tax generation for provision of services.  Establish regular meeting dates with service providers including Marathon  Analyze new housing developments County Sheriff’s Office and the fire for their impact of service provision districts of Marathon City and Edgar. and infrastructure development.  Maintain direct communication with a staff member of the WisDOT for updates and to answer questions concerning STH 29.

 Provide all service providers with regular updates, or meeting minutes, from official town meetings.

Town of Cassel 72 Comprehensive Plan 2018 Marathon County, Wisconsin Chapter Ten Implementation

The primary reason a community prepares used to protect existing development and a comprehensive plan is to establish a guide future growth and development as framework to influence decisions identified in this comprehensive plan. regarding management of growth and There are also non-regulatory approaches regulation of development to maintain the to implementing the comprehensive plan; desired community character, and to set these generally involve decisions about priorities for public expenditures. To be how the community will spend its limited effective, this plan should be actively used funding resources on capital as a tool to guide decisions concerning: improvements and staffing.

 The implementation and enforcement The state planning law requires that by of regulatory ordinances based on the January 1, 2010 certain programs and/or goals and objectives identified in this actions that affect land use must be plan. consistent with the locally adopted comprehensive plan. The Town Board  The development of programs and officially adopts these regulatory and land support systems that further the goals use control measures as ordinances (or as and objectives set forth in this plan. revisions to the existing ordinances).

 The implementation of specific  Zoning Ordinance and Map: Zoning community improvements as is used to manage and control how identified in the comprehensive plan. land is used and developed. Zoning ordinances typically establish detailed  The establishment and support of a regulations concerning how land may continued planning process providing be developed, including setbacks, the for periodic review and updates to this density or intensity of development, plan and other land use control and the height and bulk of building measures. and other structures. The general purpose of zoning is to minimize Implementation Tools undesirable side effects resulting from development by segregating and/or

buffering incompatible uses and by Having the appropriate tools to maintaining standards that ensure implement the recommendations in this development will not negatively comprehensive plan is critical. The most impact the community’s character or common implementation tools are the environment. The Town of Cassel town official controls or regulatory codes. administers its owning zoning In particular, the zoning ordinance and ordinance. subdivision (or land division) regulations comprise the principal regulatory devices

Town of Cassel 73 Comprehensive Plan 2018 Marathon County, Wisconsin The establishment of zoning districts unplatted and/or undeveloped land (in and the zoning map indicates where the Town of Cassel, these regulations specific types of development can and are currently administered by should be located. Zoning districts Marathon County). These regulations shown on the zoning map should be may set forth reasonable regulations coordinated with the land use plan for lot sizes, road access, street design, and map. While the zoning map and public utilities, storm water drainage, land use map do not need to directly parks and open space, and other match at the time the land use map is improvements necessary to ensure adopted, the intent is that the land use that new development will be an asset. map will serve as a guide indicating how the property should eventually be  Capital Improvement Plan (CIP): zoned. Therefore, indiscriminate This is an ongoing financial planning zoning changes may result in program that allows local weakening of the comprehensive plan. communities to plan ahead for capital In fact, changes to zoning district expenditures and minimize unplanned boundaries should only be made if expenses. A capital improvement plan they are consistent with the adopted consists of a list of proposed projects land use map. according to a schedule of priorities However, there may be situations over a four-to-six year period. It where changing the zoning district identifies needed public boundary makes sense and is in the improvements, estimates their costs, best interest of the community. If and identifies financing methods and changing the zoning would result in a sources. Public improvements or conflict with the future land use map, expenditures typically considered in a the land use map should also be CIP include: changed. However, the future land use map should only be changed if it does  Public buildings (i.e., fire and not accurately reflect the community’s police stations) desired land use pattern. Achieving consistency between zoning and land  Park and trail acquisition and use designation is also discussed in the development land use section.  Roads and highways (maintenance As discussed below, the and new construction/paving) comprehensive plan (and future land use map) should be periodically  Utility system reviewed and updated to adjust for construction/expansion, treatment unforeseen changes or events that plants, water towers, wells, etc. were not considered at the time the initial plan and land use map were  Joint school and other community developed. development projects

 Subdivision (Land Division)  Fire and police protection Ordinance: Subdivision regulations equipment serve as an important function by ensuring the orderly development of

Town of Cassel 74 Comprehensive Plan 2018 Marathon County, Wisconsin A CIP is simply a method of planning Plan Adoption for and scheduling expenditures for public improvements over a period of The first step in implementing this plan several years in order to maximize the involves adoption of the plan by local use of limited public funds. Each year officials. The formal review and adoption the CIP should be reviewed and process involves plan review by the extended one year to compensate for Planning and Zoning Committee who the previous year that was completed. must adopt the plan by resolution of This keeps the improvement program majority vote. The Committee current and allows for modifications recommendation is forwarded to the to meet the community’s changing Town Board who must adopt the plan by needs. ordinance (of majority vote). A public hearing is required to allow public The preparation of a CIP is normally a comment on the ordinance prior to Board joint responsibility between the Town final action to adopt the plan. Adoption Board, Plan Commission, staff, and formalizes the plan document as the citizen commissions. The preparation framework to guide local development of a capital improvement program may decisions over the next 20 years. The vary from community to community adopted plan should also be recognized as depending on local preferences, the a tool for communicating the community’s local form of government and available land use policy and goals and objectives staff. The proposed capital regarding coordination of growth and improvement plan should be reviewed development. by the town in light of the priorities outlined in this comprehensive plan on Plan Use, Monitoring and Evaluation a regular basis. The adopted plan should be used as a tool by Cassel when making land use and Plan Adoption, Monitoring, and development decisions. Decisions Amendments concerning private development proposals, public investments, While this comprehensive plan is regulations, incentives, and other actions intended to provide a long-term should be consistent with the goals, framework to guide development and objectives, policies, and recommendations public spending decisions, it must also outlined in this plan. respond to the continuous stream of changes that occur in the community Although this plan describes policies and and/or region that may not have been actions for future implementation, it is foreseen when the plan was initially impossible to predict the exact future adopted. It is appropriate that some condition of Cassel. As such, the goals, elements of the plan are rarely amended objectives, and actions in this plan should while others are subject to updating on a be monitored on a regular basis to more regular basis. Plan maps should also maintain concurrence with changing be updated periodically. In general, key conditions and respond to unanticipated maps, such as the future land use map, events. should be reviewed annually to make sure they are still current.

Town of Cassel 75 Comprehensive Plan 2018 Marathon County, Wisconsin This plan should be evaluated at least and/or community meetings prior to the every 5 years, and updated at least every 10 official public hearing. years. Members of the Town Board, Planning and Zoning Committee, and any Plan Updates other local decision-making bodies should periodically review the plan and identify According to the state comprehensive areas that might need to be updated. The planning law, comprehensive plans must evaluation should involve first reviewing be updated at least once every ten years. the goals and objectives to ensure they are As opposed to the more routine still relevant and reflect current amendments described above, plan community desires. Then the strategies updates often involve re-writing of whole and actions should be reviewed and sections of the plan document and refined to eliminate completed tasks and significant changes to supporting maps. A identify new approaches if appropriate. plan update should include a thorough The evaluation should also include an examination of the community’s goals and updated timetable of actions to clarify objectives based on an analysis of current priorities. growth trends and major changes that have occurred since the plan was initially Plan Amendments adopted or last amended. Plan updates must be formally adopted following the The Cassel Comprehensive Plan may be same procedure described above for initial amended at any time by the Town Board plan adoption. following the same process described above for initial plan adoption, regardless The following criteria should be of how minor the proposed amendment or considered when reviewing plan change. Amendments may be appropriate amendments and updates: throughout the lifecycle of the plan, particularly if new issues emerge or trends  The change is consistent with the change. These amendments will typically overall goals and objectives of the consist of minor changes to the plan text Cassel Comprehensive Plan. or maps. Large-scale changes or frequent amendments to meet individual  The change does not create an adverse development proposals should be avoided impact on public facilities and services or the plan loses integrity. A list of criteria that cannot be mitigated. to determine the merits of proposed amendments is included in Table 10-1.  Development resulting from the change does not create an undue As noted above, proposed amendments impact on surrounding properties. must be reviewed by the Planning and Such development should be Zoning Committee prior to final action consistent with the physical character and adoption by the Town Board. The of the surrounding neighborhood or public should be notified of proposed Plan would upgrade and improve its changes and allowed an opportunity for viability. review and comment. For major amendments, the town might consider soliciting public opinion through surveys

Town of Cassel 76 Comprehensive Plan 2018 Marathon County, Wisconsin  The change allows a more viable Consistency among Plan Chapters transition to the planned uses on adjacent properties than the current The State of Wisconsin planning land use. legislation requires that the Implementation Element describe how  The change does not have a significant each of the required elements will be adverse impact on the natural integrated and made consistent with the environment including trees, slopes other elements of the plan. Since Cassel and groundwater, or the impact could completed all planning elements be mitigated by improvements on the simultaneously, no known inconsistencies site or in the same vicinity. exist. It is noted that some overlap naturally exists between the nine plan  There is a change in town actions or elements. Where deemed appropriate, neighborhood characteristics that goals, objectives, and actions have been would justify a change. repeated under all applicable elements to ensure they do not get “lost.”  The change corrects an error made in the original plan. This Comprehensive Plan also references previous and concurrent related planning  There is a community or regional need efforts to ensure they are considered in identified in the comprehensive plan planning decisions in conjunction with for the proposed land use or service. the recommendations of this plan. Summary descriptions of recent and  The change does not adversely impact concurrent planning efforts are provided any landmarks or other historically in the Conditions and Issues Report. significant structures or properties Recommendations from other plans have unless mitigated through relocation, been summarized and incorporated in this commemoration or dedication. plan as deemed appropriate, to foster coordination and consistency between plans. Some related plans, such as the Marathon County Hazard Mitigation Plan, are incorporated by reference in this plan and are essentially considered appendices of this plan even though they are separate documents

Town of Cassel 77 Comprehensive Plan 2018 Marathon County, Wisconsin Action Plan respond to changing priorities, financial limitations, and other unforeseen events. The table below provides a detailed list of It should be noted that many of the major actions to complete in order to actions require considerable cooperation implement this comprehensive plan. It with others, including the citizens of compiles the major short, mid, and long- Cassel, committees, and other term priorities described in each of the local/county/state agencies. nine plan elements. It also identifies the parties that will play key roles in Priority ranking is defined as follows: implementing the actions.  Immediate = ASAP Table 10-1 is intended to be used by local  Short-term = 1-4 years officials in setting priorities for capital  Mid-term = 5-9 years budgeting and project assignment. It is  Long-term = 10+ years expected that this table will be reviewed  On-going = Current activities that annually and revised, as necessary, to should continue indefinitely

Table 10-1: Implementation Plan Actions Natural Resources Who is responsible? Priority Communicate the desire for wetland protection and monitoring to Town Board Ongoing the WDNR. Obtain a main contact person from each agency the town Town Board Ongoing communicates with at the county and WDNR. Send owners of private forestland information on preservation Town Board Short-Term programs. Perform feasibility analysis to determine the maximum amount of Town Board Short-Term forestland the town could publicly own (if any). Encourage developers to maintain as much forestland as possible in Planning and Zoning new developments. Promoting conservation subdivisions or other Short-Term Committee preservation techniques.

Land Use Who is responsible? Priority Work with community residents to update the land use plan on a Planning and Zoning Mid-Term periodic basis. Committee Planning and Zoning Review residential development zoning standards Short-Term Committee Planning and Zoning Explore developing a planned unit development (PUD) ordinance Short-Term Committee Assemble a commercial development committee to interact with Town Board Immediate developers and recommend proposals to the Board. Determine the best locations for development along transportation Planning and Zoning Immediate corridors Committee Conduct a poll or public listening session to solicit community Planning and Zoning Short-Term opinion for creating and locating a commercial district. Committee Determine types and appearances of commercial development Planning and Zoning Short-Term desired and tailor commercial regulations to reflect these desires. Committee Express concerns about large mega-farm operations Town Board Short-Term Collect information on the impacts of mega-farms for local Town Board Immediate distribution.

Town of Cassel 78 Comprehensive Plan 2018 Marathon County, Wisconsin Acquire pamphlets and other informational materials on Town Board Short-Term agricultural preservation tools. Explore working with Marathon County, or local communities to Town Board Mid-Term host a workshop on agricultural preservation.

Transportation Who is responsible? Priority Perform biennial roadway evaluation. Town Board Ongoing Explore using free online software through WisDOT to streamline Town Board Immediate funding allocations for repair. Hold public hearings to discuss roadway condition and determine Town Board Short-Term in-need areas. Increase enforcement of weight limits on local roadways. Town Board Short-Term Determine local authority to levy fees against individual property Town Board Mid-Term owners for excessive roadway damage. Adopt a local driveway ordinance for a 300-foot minimum distance Planning and Zoning Immediate between driveways (for town roads). Committee

Utilities Who is responsible? Priority Perform annual review of service provision costs. Town Board Ongoing Communicate with surrounding communities the willingness to Town Board Immediate share services/costs. Explore creating a services committee to identify areas for Town Board Short-Term consolidation, sharing, or privatization.

Housing Who is responsible? Priority Planning and Zoning Observe the land use plan in siting new residential development. Immediate Committee Explore adopting a planned unit development (PUD) ordinance to Planning and Zoning Short-Term allow for concentrated multi-use development. Committee Planning and Zoning Determine limits of service provision on a per-unit basis. Short-Term Committee Determine the extent of growth desired by the community and explore exacting development fees, or incentives, to achieve desired Town Board Short-Term outcomes. Determine parameters for new housing within the town including Planning and Zoning Mid-Term minimum height, bulk, and requirements for foundations. Committee Explore adoption of residential design guidelines to promote Planning and Zoning Mid-Term development of desired structures. Committee Work with Marathon County and other agencies to develop a Town Board Short-Term seasonal housing plan for temporary residents. Determine appropriate accessory use restrictions for the Town of Town Board Short-Term Cassel.

Cultural Resources Who is responsible? Priority Contact the Marathon County Historical Society and consider teaming with other local communities to form a committee that Town Board Long-Term records historic sites. Celebrate historic local sites Town Board Long-Term

Town of Cassel 79 Comprehensive Plan 2018 Marathon County, Wisconsin

Community Facilities Who is responsible? Priority Participate in long-term planning with service-providing entities. Town Board Short-Term Annually evaluate delivery of services. Town Board Short-Term Participate in recruitment efforts, especially concerning fire and Town Board Immediate emergency response, with providing agencies.

Parks and Recreation Who is responsible? Priority Encourage proper maintenance and upkeep of the existing county Town Board Ongoing and state park systems. Communicate desires for recreational facilities and uses to the Town Board Ongoing appropriate entities.

Economic Development Who is responsible? Priority Encourage agricultural operators in the town to participate in Town Board Short-Term regional programs aimed at improving the agricultural economy. Review town ordinances to ensure that they allow secondary Planning and Zoning Immediate agricultural businesses within the town. Committee Work with surrounding communities to develop a mutually Planning and Zoning Short-Term beneficial “regional” business plan. Committee Encourage residents to patronize local establishments for goods Town Board Immediate and services. Coordinate with communities interested in establishing a local Town Board Mid-Term festival.

Intergovernmental Cooperation Who is responsible? Priority Stress with the Villages of Marathon City and Edgar the importance of communicating annexation plans and requests with Town Board Immediate the town. Determine community support for boundary agreements with the Town Board Immediate surrounding villages Perform a feasibility analysis to determine residential property thresholds to maintain sufficient tax generation for provision of Town Board Short-Term services. Analyze new housing developments for their impact of service Planning and Zoning Short-Term provision and infrastructure development. Committee Establish regular meeting dates with service providers Town Board Immediate Maintain direct communication with a staff member of WisDOT Town Board Ongoing Provide all service providers with regular updates, or meeting Town Board Immediate minutes, from official town meetings.

Town of Cassel 80 Comprehensive Plan 2018 Marathon County, Wisconsin Appendix A Public Participation Plan

Town of Cassel 81 Comprehensive Plan 2018 Marathon County, Wisconsin Appendix B Plan Resolution

Town of Cassel 82 Comprehensive Plan 2018 Marathon County, Wisconsin Appendix C Plan Ordinance

Town of Cassel 83 Comprehensive Plan 2018 Marathon County, Wisconsin Appendix C (continued) Plan Ordinance

Town of Cassel 84 Comprehensive Plan 2018 Marathon County, Wisconsin

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Town of Cassel Comprehensive Plan 2018