Town of Montello Comprehensive Plan

Recommended by Town Plan Commission: December 14, 2004 Planning Assistance by: Adopted by Town Board: March 8, 2005

ACKNOWLEDGEMENTS

Town Board and Staff: Art Polk, Chairman Fred Cartwright, Supervisor Richard Becker, Supervisor Eileen Napralla, Clerk Marilyn Rieme, Treasurer

Comprehensive Plan Committee Fred Cartwright, Chairman Adam Pientka, Vice-Chairman Tanya Daniels, Secretary Richard Becker, Member Joel Jaster, Member

Planning and Design Assistance by: MARQUETTE COUNTY PLANNING AND ZONING DEPARTMENT Tom Onofrey, Zoning Administrator MARQUETTE COUNTY UW-EXTENSION OFFICE Patricia Watson, Community Resource Development Agent VANDEWALLE & ASSOCIATES Mark Roffers, AICP, Principal-in-Charge Dana Jensen, Assistant Planner, Co-Author Brad Davis, AICP, Associate Planner Dustin Wolff, Associate Planner Andrew Curtiss, Cartographer Justin Yonker, Assistant Designer Laura Theis, Design Intern Ellen Hall, Communications Team Manager Amy Babula, Presentation Specialist 120 East Lakeside Street Madison, WI 53715 (608) 255-3988 www.vandewalle.com

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 VANDEWALLE & ASSOCIATES 2003. All rights reserved. The party to whom this document is conveyed (“Client”) from VANDEWALLE & ASSOCIATES is granted the limited, non-transferable, non-exclusive right to copy this document in its entirety and to distribute such copies to others. In no event shall VANDEWALLE & ASSOCIATES be liable to Client or any third party for any losses, lost profits, lost data, consequential, special, incidental, or punitive damages, delays, or interruptions arising out of or related to the recommendations contained in this document. VANDEWALLE & ASSOCIATES shall not be liable or otherwise responsible for any future modifications to this document or their effect on the results of the implementation of the recommendations contained herein. In the event that Client modifies this document, the following disclaimer applies: This document is based on copyrighted materials of VANDEWALLE & ASSOCIATES. This document contains modifications that have not been reviewed or approved by VANDEWALLE & ASSOCIATES. As a result, VANDEWALLE & ASSOCIATES expressly disclaims any and all warranties associated with, or liability resulting or arising in any way from, this modified document.

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TABLE OF CONTENTS

Chapter One: Issues and Opportunities ...... 4 Map 1: Jurisdictional Framework...... 8 Figure 1: Population Trends, 1970 - 2000...... 10 Figure 2: Population Forecasts, 2005 - 2025 ...... 11 Figure 3: Age and Gender Distribution, 2000...... 11 Figure 4: County Age Cohort Forecasts, 2000 to 2020 ...... 12 Figure 5: Household Characteristic Comparisons (2000)...... 13 Figure 6: Education and Income Levels, 2000...... 14 Figure 7: Labor Force, Marquette County and the Town of Montello, 2000...... 14 Figure 8: Jobs in Marquette County, 1997 - 2001 ...... 15 Chapter Two: Agricultural, Natural, and Cultural Resources ...... 24 Map 2: Natural Resources ...... 28 Figure 9: Example of Vegetative Buffer...... 38 Figure 10: Soil Suitability for Agriculture...... 44 Chapter Three: Land Use ...... 54 Figure 11: Existing Land Use Totals – Town of Montello, 2004 ...... 56 Figure 12: Marquette County Equalized Land Values, 1980 - 2000...... 57 Map 3: Existing Land Use...... 60 Figure 13: Projected Rural Residential Land Use Demand...... 62 Figure 14: Examples of Conventional and Conservation Development (Clustering)...... 65 Map 4: Planned Land Use...... 72 Chapter Four: Transportation ...... 74 Map 5: Transportation and Community Facilities...... 84 Chapter Five: Utilities and Community Facilities...... 86 Figure 15: Fire and Ambulance District Boundaries (2004)...... 88 Figure 16: School District Enrollment, 1997 - 2003...... 89 Figure 17: Timetable to Improve or Enhance Utilities and Facilities...... 94 Chapter Six: Housing & Neighborhood Development ...... 96 Figure 18: Housing Types: 1990- 2000...... 97 Figure 19: Comparison of Housing Stock Characteristics - 2000 ...... 98 Figure 20: Age of Town of Montello Housing as a Percent of the Total 2000 Housing Stock...... 98 Figure 21: Example of Conservation Neighborhood Development Compared to Conventional Development...102 Chapter Seven: Economic Development...... 104 Figure 22: Town of Montello Strengths and Weaknesses for Economic Development...... 108 Chapter Eight: Intergovernmental Cooperation...... 112 Chapter Nine: Implementation...... 122 Figure 23: Recommended Implementation Actions...... 124

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CHAPTER ONE: ISSUES AND OPPORTUNITIES

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The Town of Montello, located in southeastern Marquette County, is a rural town characterized by wide expanses of wetlands, lakes, forests, and agricultural land surrounding the County’s government center. This setting provides the Montello area the dual opportunity to for both population and economic growth while protecting its valued natural features. Indeed, the 1990s brought growth to the Town of Montello beyond the levels of growth experienced in the cities and villages in Mar- quette County. This trend makes planning for the Town’s future increasingly important as a way to retain the Town’s valued characteristics while ensuring a successful future. In addition to its shared border with the City of Montello, the Town is bordered on the north by the Town of Shields, on the south by the Town of Buffalo, on the east by the Town of Mecan and the Town of Marquette in Green Lake County, and on the west by the Town of Packwaukee. The Town has adopted Marquette County general zoning. This chapter provides the baseline data and information necessary to develop a comprehensive understanding of the changes taking place in the Town of Montello. This chapter includes population, household and employment trends and forecasts, age distribution and education levels, and employ- Plan Adoption Process ment and income characteristics. This chapter also includes a statement on the Town’s vision and Before adoption, a Plan must go through a general goals to guide the future development in formal public hearing and review process. The the Town of Montello over the 20-year planning Town Plan Commission adopts the Plan by period. resolution and recommends that the Town Board enact an ordinance adopting the Plan as the Town’s official comprehensive plan. Fol- A. PURPOSE OF THIS PLAN lowing Plan Commission action, the Town Board holds a public hearing to discuss the The purpose of the Town of Montello Comprehen- proposed ordinance adopting the Plan. Copies sive Plan is to help guide decision-making by: of the public hearing draft of the Plan are for- Identifying areas appropriate for develop- warded to a list of local and State governments ment and preservation over the next 20 for review. A Class 1 notice must precede the years; public hearing at least 30 days. The notice must include a summary of the Plan and in- Recommending types of land uses for spe- formation concerning where the entire docu- cific areas in the Town; ment may be inspected or obtained. The Identifying needed transportation and Board may then adopt the ordinance approv- community facilities to serve future land ing the Plan as the Town’s official Comprehensive uses; Plan, and may forward this Plan to Marquette County for inclusion in the County Plan. Providing detailed strategies to implement recommendations. This formal, well-publicized process facilitates broad support of plan goals and recommenda- This Comprehensive Plan is being prepared under tions. Consideration by both the Town Plan the State of Wisconsin’s “Smart Growth” legis- Commission and Board assures that both bod- lation contained in §66.1001, Wisconsin Stat- ies understand and endorse the Plan’s recom- utes. This Plan meets all of the statutory ele- mendations. Adoption by both the Town and ments and requirements of the State law and County would assure that both are “reading grant program. The Town of Montello’s plan- from the same play book” when making future ning process was conducted concurrently with decisions affecting the Town. Marquette County, thirteen other towns, and five cities and villages (see Map 1).

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This Comprehensive Plan is organized in nine chapters containing all of the required elements listed above. Each chapter begins with background information on the element (e.g., land use, transportation, economic development), followed by an outline of the Town’s policy desires related to that element, and ends with detailed recommendations for the element. The final chapter (Implementation) provides recommendations, strategies, and timelines to ensure the implementation of this Plan. After 2010, only those plans that contain the nine required elements and adopted under the prescribed procedures will have legal standing. Any program or action undertaken by the Town after 2010 that affects land use will have to be consistent with this Plan. These programs are actions include zoning and subdivision ordinance decisions.

B. PLANNING PROCESS Marquette County’s and the Town of Montello’s multi-jurisdictional comprehensive planning process involved work done simultaneously at both the local and County level. Much of the initial public input in the countywide planning process was obtained through an opinion survey conducted in early 2002, with more local input provided during a series of visioning workshops held in each of the participating towns, villages and city from 2002 to early 2004. Much of the data collection and inventory mapping for this multi-jurisdictional project was completed at the County level, with supplemental information and more detailed maps prepared for each of the local participating communities. An opportunities analysis was also conducted to identify “big picture” influences in the region, from which each local community could advance specific goals or strategies to take advantage of these unique opportunities. Each local community had a chance to review the background data, opportunities analysis, and inventory maps. The Town of Montello customized the information in this Plan document to address specific local issues and concerns. To ensure that each planning document prepared under this process was “speaking the same language,” each community worked from the same menu of land use categories to draft their individual planned land use map. When brought together, these local planned land use maps formed the basis of Marquette County’s planned land use map. Each participating community, as well as the County, distributed a draft and final version of their Comprehensive Plan document to surrounding jurisdictions, and each jurisdiction followed all of the required procedures to formally adopt a comprehensive plan as prescribed in Wisconsin’s comprehensive planning legislation.

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Map 1: Jurisdictional Framework

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C. POPULATION TRENDS AND FORECASTS The Town of Montello has experienced steady population growth over the past thirty years. It realized a particularly high rate of growth in the 1980s, with the population nearly doubling in this 10-year time period. Figure 1 compares the Town’s population trends over the past 30 years to trends in neighboring communities, the County, and the State. From 1990 to 2000, Mon- tello’s growth rate of about 11 percent was less than half of Marquette County (18 percent). In the East Central region of Wisconsin, Marquette County is noted for having one of the highest rates of growth over the past several decades. Between 1990 and 2000, the Town’s growth rate was also lower than most of the neighboring communities, including the Towns of Packwaukee (14 percent), Buffalo (37 percent) and Mecan (34 percent). However, the Town of Montello’s growth rate was slightly more than twice as fast as the City of Montello (5 percent) and outpaced growth statewide (9 percent). Since the 2000 census, the Town’s growth has been minimal, with an estimated population of 1,058 residents in 2004.

Figure 1: Population Trends, 1970 - 2000

Population Percent 1970 1980 1990 2000 Change* Change* Town of Montello 531 640 940 1,043 103 11.0 Town of Shields 384 419 408 456 48 11.8 Town of Packwaukee 668 998 1,135 1,297 162 14.0 Town of Buffalo 487 745 792 1,085 293 37.0 Town of Mecan 397 599 541 726 185 34.2 City of Montello 1,088 1,273 1,329 1,397 68 5.1 Marquette County 8,865 11,672 12,321 14,555 2,234 18.1 Wisconsin 4,417,731 4,705,767 4,891,769 5,363,675 471,906 9.6 Source: U.S. Census of Population and Housing, 1970-2000 * Represents change between 1990 and 2000

Figure 2 shows the projected population in five-year increments over the next 25 years based on forecasts prepared by the Wisconsin Department of Administration and the East Central Wis- consin Regional Planning Commission (ECWRPC) in 2003 for Montello, the neighboring communities, and Marquette County. State and regional forecasts for neighboring counties, the East Central region (which includes Calumet, Fond du Lac, Green Lake, Marquette, Menominee, Outagamie, Shawano, Waupaca, Waushara and Winnebago Counties), and the State are also shown for comparison. These projections forecast a population of 1,119 in the Town of Montello by the year 2010, 1,172 residents by 2020, and 1,195 in 2025. These forecasts will be useful for long-term land use, housing, and community facility planning; but the limitations of these projections should be recognized. The State and ECWRPC base these projections on historical growth patterns and the composition of the current population base. The reliability of these projections depends on the continuation of past growth trends. Projecting populations for rural areas such as the Town of Montello is subject to error, as minor changes in birth, death or migration rates can significantly impact growth rates. Actual future

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population will depend on market conditions, attitudes toward growth, and development regulations. Figure 2: Population Forecasts, 2005 - 2025

2005 2010 2015 2020 2025 Town of Montello 1,080 1,119 1,153 1,173 1,195 Town of Shields 463 470 476 477 479 Town of Packwaukee 1,322 1,351 1,373 1,380 1,390 Town of Buffalo 1,161 1,238 1,307 1,360 1,413 Town of Mecan 757 789 817 835 855 City of Montello 1,413 1,432 1,446 1,443 - Marquette County 15,052 15,579 16,035 16,293 - East Central Region* 641,979 650,636 657,542 661,640 - Wisconsin 5,531,025 5,700,303 5,878,871 6,056,186 6,216,980

D. DEMOGRAPHIC TRENDS AND FORECASTS Demographic trends suggest an aging population base in the Town of Montello, as shown in Figure 3. Over the past few decades, the median age of the Town’s residents has increased (from 38.5 in 1980, to 42.7 in 1990, and 45.5 in 2000). The proportion of the Town’s residents under the age of 18 has decreased from 23.2 percent in 1990 to about 20.6 percent in 2000. The Town of Montello’s percentage of school-age residents is about the same as surrounding communities and the County. There is a growing percentage of the population over the age of 65 (from 19.1 percent in 1980 to 20.4 percent in 1990, and to 22.1 percent by the year 2000). Com- pared to the neighboring towns and the City, the Town of Montello has a higher median age and a higher proportion of residents over the age of 65.

Figure 3: Age and Gender Distribution, 2000

Median Age % under 18 % over 65 % Female Town of Montello 45.5 20.6 22.1 50.0 Town of Shields 45.2 20.2 22.1 47.6 Town of Packwaukee 38.7 9.8 12.7 24.7 Town of Buffalo 38.1 25.4 13.8 48.6 Town of Mecan 47.4 17.1 26.4 50.0 City of Montello 40.3 23.7 22.3 51.1 Marquette County 40.9 21.1 18.3 45.7 Wisconsin 36.0 25.5 13.1 50.6 Source: U.S. Census of Population and Housing

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Population projections through 2020 are available at the County level for specific age groups. Al- though the Town’s overall growth rate differs from the County’s, the remainder of the population projections for the Town has been quite comparable to those of the County. According to State projections displayed in Figure 4, the County’s “baby boom” and elderly age cohort will continue to increase over the planning period, while the younger age groups (5 to 19) will decrease. This projected change in age groups will have important implications for future school facility planning, elderly housing, emergency services, and transportation.

Figure 4: County Age Cohort Forecasts, 2000 to 2020

Under 5 5 - 19 20-64 65+ 2000 765 2,891 8,458 2,889 2005 800 2,690 8,666 2,896 2010 817 2,448 9,379 2,935 2015 858 2,370 9,642 3,164 2020 839 2,398 9,399 3,657 Source: Wisconsin Department of Administration, 2003 Note: DOA projections for 2025 and 2030 will be added when available

The Town of Montello’s racial composition is reflective of County trends. Most Town residents reported “White” as their only race (99.3 percent). “Black or African American,” “Ameri- can Indian,” “some other race,” or “two or more races” made up the remaining the population.

E. HOUSEHOLD TRENDS AND FORECASTS Figure 5 compares selected household characteristics for the Town of Montello with surrounding communities. The Town’s 2.31 person average household size was lower than the County and the State, but about the same as neighboring communities. The Town’s average household size has fluctuated over the past twenty years, from 2.35 in 1980, to 2.56 in 1990, dropping to 2.31 in 2000. The average household size in the County has also been variable; it jumped from 2.28 to 2.52 between 1980 and 1990, and dropped back to 2.41 in 2000. The percent of households occupied by a single resident in the Town of Montello was higher than that of the Town of Shields, the Town of Packwaukee, the Town of Buffalo, the Town of Mecan and the County and the State. Only the City of Montello had a higher rate of single-person households. These statistics suggest a large number of households without children living with them (i.e. “empty nesters”), and situations where only one family member remains.

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Figure 5: Household Characteristic Comparisons (2000) Average % Single- Total Housing Total House- person Units Households hold Size household Town of Montello 699 443 2.31 34.8 Town of Shields 277 194 2.35 25.3 Town of Packwaukee 932 563 2.28 27.2 Town of Buffalo 461 412 2.63 17.5 Town of Mecan 735 321 2.23 25.5 City of Montello 677 591 2.25 37.2 Marquette County 8,664 5,986 2.41 25.4 Wisconsin 2,321,144 2,084,544 2.50 26.8 Source: U.S. Census of Population and Housing, 2000

Marquette County’s average household size is forecasted by the ECWRPC to drop to 2.35 in 2005; to 2.29 in 2010; to 2.23 in 2015 and to 2.17 persons per household in 2020. Assuming Town population trends generally follow those of the County, this rate of household size change was applied to the Town. For the Town, a decrease in household size (2.25 in 2005, 2.19 in 2010, 2.13 in 2015, 2.07 in 2020, 2.02 in 2025) is also expected. These projected household sizes will be used in projecting future housing unit demand in the Town of Montello over the next 20 years. More information on the Town’s housing and household characteristics is provided in Chapter Six: Housing and Neighborhood Development.

F. EDUCATION AND INCOME LEVELS “Educational attainment” is defined as the highest degree or level of school completed, and is a variable used when assessing a community’s labor force potential. According to 2000 census data, 81 percent of the Town’s population aged 25 and older have attained a high school level education or higher. Income is another important economic indicator. The median household income in the Town was higher than that of most of its neighboring communities, but slightly lower than that reported for the County and the State.

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Figure 6: Education and Income Levels, 2000

High School Bachelors Median House- Graduate or Higher (%) Degree or Higher (%) hold Income ($) Town of Montello 81.3 8.5 35,347 Town of Shields 78.0 9.9 32,250 Town of Packwaukee 76.1 8.7 31,823 Town of Buffalo 78.5 6.5 38,594 Town of Mecan 67.6 7.1 31,389 City of Montello 74.3 12.0 32,500 Marquette County 78.8 10.1 35,746 State of Wisconsin 85.1 22.4 43,791

G. EMPLOYMENT CHARACTERISTICS AND FORECASTS Montello’s labor force characteristics are similar to those of Marquette County. For instance, both the Town and the County have the highest percentage of their residents employed in the manufacturing sector. There are some differences. Town residents are more likely to be in service sector jobs than those throughout the County. These types of jobs include retail trade, recreation, accommodation and food services, finance, insurance, and real estate; this is likely attributed to the Town’s proximity to employment opportunities in the City.

Figure 7: Labor Force, Marquette County and the Town of Montello, 2000

% of Labor Force % of Labor Force Occupational Group (Marquette County) (Town of Montello) Manufacturing 26.4 20.1 Education, health and social services 14.2 16.0 Arts, entertainment, recreation, accommodation and 9.6 7.1 food services Retail trade 9.5 14.5 Construction 8.1 7.3 Agriculture, forestry, fishing and hunting, and mining 6.1 5.2 Public administration 6.0 5.0 Transportation and warehousing, and utilities 4.8 4.3 Personal services 4.3 5.8 Finance, insurance, real estate, and rental and leasing 3.7 5.6 Professional, scientific, management, administrative, and 3.6 3.7 waste management services Wholesale trade 2.2 3.7 Information 1.6 1.7 Source: U.S. Census of Population and Housing, 2000

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The County’s primary economic activities are manufacturing and education related. The healthcare and personal service sectors are also important employers. Major manufacturing employers in the County include Brakebush Brothers, Inc. (poultry processing), Glen Oak Lumber & Milling Inc. (wood millwork), and Montello Products Co. (electrical device manufacturing). Within the Town, there are several small contractor, commercial, and service businesses, particularly along Highway 22. Many Town and County residents travel outside of Marquette County for work. About half of the working residents of the County commute to other counties for work.

Figure 8: Jobs in Marquette County, 1997 - 2001

Job Sector 1997 1998 1999 2000 2001 Construction and Mining 263 259 264 284 251 Manufacturing 1,141 1,1511,152 1,190 1,221 Transportation, Communication, and Utilities 72 109 106 91 84 Wholesale Trade 75 80 75 89 95 Retail Trade 679 694 733 721 705 Finance, Insurance, Real Estate 88 105 106 109 111 Personal and Professional Services 660 709 654 593 601 Government 715 724 729 771 753 Total Jobs 3,694 3,829 3,818 3,848 3,821 Source: Wisconsin Department of Workforce Development, Non-farm wage and salary estimates, March 2002

Figure 8 offers a more detailed examination of the jobs reported in Marquette County from 1997 to 2001. Overall, the number of jobs provided in the County increased by 3 percent. Cer- tain sectors have gained jobs while other sectors were negatively affected by the recent recession. In summer 2002, Universal Silencer, one of the County’s largest employers, closed its Montello factory that employed 58 people, mostly in the manufacturing sector. Marquette County forecasts provided by Woods & Poole Economics, Inc.–a regional economic and demographic analysis firm– show the County’s total employment growing at an annual rate of just over 1 percent over the next 20 years. The manufacturing sector is projected to experience the highest growth over this period. More information on the County’s employment characteristics is provided in Chapter Seven, Economic Development.

H. RESULTS OF PUBLIC PARTICIPATION EFFORTS The Town of Montello formed a Plan Commission to guide the comprehensive planning process. Subsequently, the Commission organized, led, and participated in a number of efforts to in- volve and educate the public and itself in the planning process. These efforts included: Town Planning Survey (Summer 2002) Community Visioning Workshops (Fall 2002) Plan Commission Meetings, Hearings, and Open Houses (Fall 2003 to Winter 2005)

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The following is a summary of these efforts, which led to the preparation of a Town vision statement and guides the more detailed recommendations of the Comprehensive Plan.

1. Town Planning Survey In June 2002, the Town of Montello and fourteen other communities in Marquette County participated in a countywide opinion survey. The purpose of the survey was to obtain input from residents and property owners on planning issues and preferred approaches to addressing those issues. The survey was sent to 1,017 residents in the Town of Montello; 369 were returned. This resulted in a response rate from Town residents of 36 percent. The survey revealed that the natural environment and recreational opportunities are important to the quality of life to Town residents. Survey respondents reported wildlife and scenic beauty, lakes and rivers, the quiet and peaceful character, and small-town living environment among the most highly valued characteristics of their community. More than 6 of 10 respondents rated the quality of the local environment as good or very good—lower than the ratings countywide. More than 9 out of 10 Town respondents viewed protection of groundwater and lakes, rivers, and streams as key planning issues. When asked to select a statement that best expressed their vision for the future, the majority chose “preserve rural landscape with moderate amounts of new development.” According to Town respondents, factors negatively affecting quality of life included too few economic opportunities. Town Survey Results Nearly 2/3 considered “increase in taxes” to be a concern facing Town residents, with “lack of job opportunities” and Nearly 9 of 10 Town of “lack of new businesses” ranked second and third among a Montello residents agreed list of other choices. Nearly 40 percent of respondents also that it is important for residents to plan for the considered access to goods and services to be poor. When future of their Town. asked what types of non-residential development they felt was appropriate for the area, nearly 2/3 supported “small-scale” retail and industrial development (less than 50 employees), with a majority supporting moderate scale industrial development and tourism. Respondents did not generally observe a great need for additional housing in the community, but elderly or assisted living housing was identified as the greatest housing need (38% agreed). The survey signaled significant opposition to additional mobile home parks. Almost 9 of 10 respondents agreed that it is important for residents to plan for the future of the Town, and almost 6 of 10 agreed that land use should be governed by zoning (2 of 10 disagreed and 2 of 10 were neutral). “Protecting private property rights” was viewed as an important planning issue by over 9 in 10 respondents. Between 2/3 and 3/4 of respondents agreed to moderate to high levels of restrictions on the locations of mobile homes and manufacturing plants, while a majority agreed to such restrictions on locations of large scale “commercial farms,” campgrounds and RV parks, and subdivisions. One quarter of respondents agreed to moderate to high restrictions on the siting of individual homes.

2. Town Visioning In 2002, the Town created a Vision Planning Committee to coordinate the community’s visioning efforts, working with UW-Extension staff. That Committee was responsible for pub- licizing and encouraging participation in three visioning sessions held in fall 2002.

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a. Key Planning Issues Exercise At the first session in September 2002, participants were asked to identify key planning- related issues in the Town. When asked to identify the “best things” about the Town, frequently mentioned items included schools, shopping, services, lakes, natural areas, and wildlife. When asked to describe areas in need of improvement, increased job opportunities, upgrades to downtown Montello, greater opportunities and activities for youths, improved lake quality, and garbage collection were mentioned. Participants’ vision for the future often included an interest in balancing the preservation of rural character and the environment with compatible retail and job opportunities. The key issues raised at the workshop were then classified according to several required elements of this Plan, and summarized as follows: Agricultural, Natural, and Cultural Resources. Participants prioritized improving lake quality for both Buffalo and White Lakes, and increasing public access. Some concerns were expressed over rules for use of White Lake, particularly for personal watercraft. Support was expressed for preservation of natural resources in general. Land Use. Participants recognized the need to balance planned growth with preservation of rural character. Most supported the development of additional businesses in the area, provided that they were located in areas that did not impair natural resources. Town participants also viewed working with the City of Montello as important to addressing community-wide land use, housing, and economic issues. Transportation: Some participants wished to explore public transit in the Montello area, such as van service to Madison or Portage or taxi service to local services for residents without other options. Other identified transportation needs included downtown parking, shoulders on rural roads for biking and walking, repairs to less traveled roads, and better speed limit enforcement. Housing: Few housing issues were raised. Some identified an interest in supporting additional rental housing options in the area (perhaps by re-using the old high school in the City) and improving the quality of existing rental housing. Economic Development. This topic generated the most discussion, focused in particular on the downtown and edge expansion areas for the City. Ideas for future economic development included: (a) adding a more diverse mix of commercial businesses, like a bakery and more restaurants; (b) supporting light industry as a means to provide better paying jobs; (c) providing more information and assistance to help potential business owners start up; and (d) supporting downtown revitalization. There was also considerable discussion and some disagreement as to whether a large dis- count department store in Montello would benefit the community or existing businesses. Some felt that this was not feasible enough to worry about. Utilities and Community Facilities. There was general satisfaction with schools and emergency services. Participants expressed an interest in enhancing other facilities and services, such as better facilities and opportunities for youths, garbage pick- up and large item disposal, and health care.

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b. Visual Preference Survey In October 2002, workshop participants viewed a series of slides depicting images of landscapes and development they would and would not like to see in the Town of Mon- tello. The most commonly selected “positive” images were of agricultural and recreational landscapes, sometimes surrounding a small community. Highly rated landscapes included farm fields, farm buildings, and animals; narrow rural roads; hills; trees; wetlands; and lakes.

Commonly selected “negative” images included subdivisions, houses grouped close together, and similar housing designs (tract housing).

c. Town Vision Statement At the third workshop in November 2002, the Town Vision Planning Committee, in consultation with others in attendance, developed the vision statement presented at the end of this chapter.

3. Plan Commission Meetings, Hearings, and Open Houses On September 9, 2003, the Town Board adopted procedures for public participation for the remainder the planning process. Those procedures featured consultant-facilitated efforts, including: Regular Plan Commission Meetings (Fall 2003-Fall 2004). All Plan Commission meetings to discuss the Comprehensive Plan were noticed and held as open public meetings, and provided for a public comment period. Community Open House (November 10, 2004). The complete draft Plan was presented at an open house involving presentation of the Plan, a question and answer period, plan review summaries and displays, and opportunity for oral and written comments. Com- ments were summarized and made available for public review. Formal Public Hearing (Winter 2005). The Town held a formal public hearing on its Plan and the adopting ordinance prior to adoption. All members of the public had an opportunity to present testimony and offer comments at the public hearing.

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I. COUNTY AND LOCAL OPPORTUNITIES The Town of Montello is strategically located within central Wisconsin’s larger regional population and recreational base. Montello’s central location, the area’s wealth of natural resources and rural lands, and the Town’s transportation and economic links to neighboring communities and metropolitan regions offer unique opportunities that will impact the character and health of the Town in the future. The Town of Montello has several assets that create opportunities for future enhancements to economic and community health. These assets include: The greater “Montello Community” Position as a transportation and regional hub, particularly relating to Highways 22 & 23 Proximity to regional tourist destinations Access to metropolitan areas Natural setting, particularly related to the lakes The combination of these factors create several opportunities for the Town’s future. These are discussed in greater detail below.

1. The Greater “Montello Community” The Town and City of Montello have the unique opportunity to plan cooperatively for the shared land use and economic development potential of the combined “Montello Com- munity.” The Town has much to gain from supporting and capitalizing on the assets of the City, including the schools, services, community facilities, recreation areas and parks, and downtown businesses. These opportunities include expansion of utilities and sewer service to mutually agreed-upon areas near the City-Town edge. Cooperative approaches to service provision and economic development and land use will ultimately benefit both the Town and City.

2. Proximity to Metropolitan Areas Montello lies within a 1-to 3-hour driving time from the Madison, Milwaukee, Fox Valley, and Chicago metro areas. This is often defined as an “urban field,” a term used to describe peripheral rural areas that share a strong flow of people, commodities, money, and information with their nearby metropolitan magnets. Rural places in the “urban field” are popular for weekend visits, seasonal recreation, vacation homes, and retirement living. Montello Area Opportunities This flow of people and goods will undoubtedly increase as the surrounding metropolitan areas Cooperation between the Town become more populated and congested, as the the City on shared goals population continues to grow, and there are Tourism Growth more retirees in the area. Further, the trend of Outdoor and Commercial much of the County’s workforce commuting Recreation outside of the County will likely continue as job Community Events opportunities expand in the Madison and Traditional Economic Develop- Fox Valley metropolitan areas. Telecommut- ment ing will also become more prevalent as more “Rural Living” Alternative

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people have the option to work a few days out of the week from home and telecommunication facilities improve, particularly given the high quality of life in Montello.

3. Transportation and Geographic Hub Geographically, the Montello area is located at the center of Marquette County and the greater region, making it a logical stop-over point for travelers and tourists and an ideal location for commuters, enhanced by its outstanding quality of life. As the hub of two major State highways (STH 22 and STH 23), as well as several country trunk highways and major local roads, Montello is well connected to other communities in the County as well as major metropolitan areas. As a result, Montello has access to a broader range of services, commerce and jobs of the State’s major metropolitan regions.

4. Abundant Outdoor Recreation Areas Marquette County’s open lands, trout streams, wetlands, lakes, river impoundments and woodlands make it a popular destination for not only year-round residents, but also seasonal hunters, fishermen, boaters, hikers, campers, and tourists. Montello and Buffalo Lakes, as well as many of the smaller lakes in the Town are popular locations for fishing and other recreational uses that could be further enhanced by measures to improve water quality.

5. Tourism Potential Opportunities for tourism in Montello combine its natural and recreational assets with the historic, cultural, and civic amenities. Tourism is one of Wisconsin’s top three industries and in 2002 travelers spent nearly $11.7 billion in the State (with an estimated $44 million in Marquette County). National trends are showing that consumers are traveling closer to home and choosing car over air transportation. With its proximity to growing metropolitan areas, its position as the “Gath- ering Place” for Marquette County, and its lakes and parks, the Montello area is poised to take advantage of this current trend for years to come. There are opportunities to cooperatively develop and market these tourism opportunities with other counties and cities in the region to a growing, eager market in nearby metro areas. The Fox and Montello Rivers and Buffalo and Montello Lakes provide unique regional tourism opportunities. Over the past decade, there have been several efforts related to the designation and development of the Fox River Heritage State Parkway between Green Bay and Portage. This State parkway would promote the cultural, historical, recreational and natural resources of this river corridor. Along the Upper Fox River portion of the parkway, opportunities to promote designated canoe routes that would re-trace the discovery route of Marquette and Joliet, early French explorers have been identified. Land-based trail systems along the corridor including hiking trails, multi-use trails, bike routes and green- ways, have been promoted. Efforts to maintain the lakes for fishing and water-based recreation, as well as for a backdrop for commercial and seasonal home development may also stimulate tourism. Montello’s central location and the highway networks make Montello a potential stop in the network of existing tourist entertainment destinations, including: Hotels and water parks located in the Wisconsin Dells/Lake Delton area.

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Weekend flea market and vibrant tourist-oriented downtown in Princeton. The Montello Flea Market could take advantage of this proximity with aggressive marketing and quality exhibitors. Hotels and vacation homes in Green Lake County, provide an opportunity to create a market niche in Montello. Establishing itself as a link among these other commonly visited tourist destinations could enhance business opportunities in the Montello area. The continued growth potential for the tourism destination niche, if carefully planned, will provide a significant economic growth opportunity for the area.

6. Rural Living In addition to active recreational pursuits, the Town’s rural character, scenic qualities, and secluded wooded areas provide an attractive backdrop for housing. The area offers opportunities to live a slower pace, find affordable housing, and be in proximity to the recreational and entertainment assets of the region. The area will be attractive to new residents, from commuters to “urban refugees” to retirees, seeking a quality, affordable, living environment. Within the Town, the lakes, the rolling agricultural landscape, the Grand River Marsh, and other natural areas provide these types of “rural” atmospheres. This Plan will help identify how the Town of Montello wishes to address this expected development pressure.

J. STATEMENT OF OVERALL VISION AND GOALS Each chapter of this Comprehensive Plan includes a set of goals, objectives, and policies which will provide the vision and policy guidance that the Plan Commission, Town Board, Town residents, and other interested groups and individuals need to guide the future preservation and development of the Town of Montello over the next 20+ years. Visions, goals, objectives and policies are defined below: A Vision is a broad reflection of the Town’s desires for the future. This statement serves as the foundation for setting goals, objectives, and policies. Goals are broad statements that express general public priorities about how the Town should approach development issues during the next 20+ years. These goals are based on key issues, opportunities and problems that affect the community. Objectives are more specific than goals and are usually attainable through planning and implementation activities. The accomplishment of an objective contributes to the fulfillment of a goal. Policies are rules or courses of action used to ensure plan implementation and to accom- plish the goals and objectives. The policies are intended to be used by decision-makers on a day to day basis. Programs are specific projects or services that are advised to achieve plan goals, objectives, and policies. Programs are sometimes included in the same list as “policies” and are sometimes included in the same section as “recommendations,” depending on the chapter.

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Below is an overall vision and goals to guide the future preservation and development in the Town of Montello over the 20-year planning period. This chapter does not discuss specific objectives, policies, and programs, which are instead included in subsequent chapters.

TOWN OF MONTELLO OVERALL VISION AND GOALS: Vision Statement “The Town of Montello envisions that it will: Develop a land use plan that will manage future development to preserve the rural character and landscape of the Town. Through a cooperative effort with the City of Montello, maintain a balance between our rural amenities and their controlled development and expansion. Promote new commercial and light industrial development along the Town’s two major highways. Support, develop, and encourage activities to the benefit of all ages. This vision will provide maximum benefit to the community and its residents.” Goals Promote and protect the rural character of the Town of Montello through carefully considering the quantity and quality of residential and non-residential development. Protect the Town’s valued natural resources and environmental features. Balance the need for economic development with the preservation of quality of life. Create and enhance connections with the City to encourage economic and civic development.

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May 2005 23 Town of Montello Comprehensive Plan

CHAPTER TWO: AGRICULTURAL, NATURAL, AND CULTURAL RESOURCES

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The Town of Montello offers a rural mix of water resources, agricultural land, and open spaces in the center of Marquette County and within the County’s largest concentration of people. This blend of people and resources make the Town special place, and highlights the need to consider the natural, cultural and historical resources the Montello community offers. This chapter contains a compilation of background data, goals, objectives, policies, and programs for natural resource, agricultural, and cultural resource protection.

A. NATURAL RESOURCE INVENTORY The Town of Montello features a mosaic of wetlands, forests, lakes, farmland, and open spaces, which the community survey Survey Results and other public participation efforts revealed are key aspects of In a recent survey, over the community. Map 2 depicts the Town’s key natural resources, 60% of Town residents described in more detail below. rated the quality of the Town’s environment as 1. Landforms/Topography/Non-Metallic Resources good or very good. The terrain in the Montello area is gently rolling with wetlands and floodplain areas characterizing the lower elevations. The Town’s landforms and topography have been shaped by several glacial advances and re- treats over northeastern and central Wisconsin some 15,000 to 25,000 years ago. Numerous unique geologic and topographic features emerged such as escarpments, outwash plains, lake plains, terminal moraines, ground moraines, and drumlins. Each of these features has unique qualities that relate to land use planning, including: structural suitability, groundwater interac- tion, and the provision of non-metallic minerals. Glaciers and their melt water scoured the area, resulting in a rich network of surface water features that today are the Town’s wetlands, rivers, and surface water. These features define the ecological region known as the “Central Sand Hills.” Montello is located at the eastern edge of the old Glacial Lake Wisconsin and contains a series of glacial moraines and partially covered glacial outwash. Pre-settlement vegetation consisted of oak forests, oak savanna, and a variety of prairie types. In 2004, Marquette County did not have a register of marketable mineral deposits. However, the County does maintain a list of active and inactive nonmetallic mine sites. Six of these sites are actively mined. There are no active quarries located in Montello. Under State Statutes (295.20), landowners who want to register their property as a nonmetallic mining deposit are required to notify each County, city, village and/or town that has zoning authority over their property. Registrations must be recorded at the County Register of Deeds in the County where the mineral deposit is located. State law limits the ability of a municipality or a County to rezone or otherwise interfere with the future extraction of a mineral resource from a registered nonmetallic mineral deposit. It is important to note that zoning changes prohibiting mining on land registered as a marketable nonmetallic mining deposit cannot take effect during the registration period. Registration is effective for 10 years and renewable for an additional 10 years. In addition, registration on property with active mining operations can be renewed for as long as mining is ongoing. Zoning changes may take affect after the registration has expired. County zoning allows nonmetallic mining, or quarrying, operations as a conditional use within the following zoning districts: Agricultural – Residential District (AG-3); General Ag-

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ricultural District (AG-2); Prime Agricultural District (AG-1); General Purpose District (GP), and; and Rural Center District (RC).

2. Woodlands Several forested areas are scattered throughout the Town of Montello. The uplands contain mostly oak, pine and central hardwoods; while the lowlands contain mostly tama- rack, black spruce and bottomland hardwoods. Forest management in the area is difficult due to insects and diseases that take a toll on the resource. Unmanaged development may also fragment wooded areas, which has negative impacts on many species of wildlife. The forested areas are prone to burning, particularly when the reach a certain density of biomass. In instances where fire is suppressed or thin- ning of vegetation is minimal, fires can have catastrophic effects. As of September 2003, there were over 486 acres of privately-owned forestland in the Town of Montello enrolled in either the Forest Crop Law (FCL) or Managed Forest Law (MFL) program, both administered by WisDNR. This represents 2 percent of the total land base in the Town and 48 individual parcels of land. The MFL program was enacted in 1986. To qualify for MFL enrollment, the forest land must be at least 10 contiguous acres and participating landowners must adopt a forest management plan that includes harvesting at least 80 percent of their forested area. In exchange, their land is assessed for tax purposes at a rate below the State average. Unlike the FCL program, MFL landowners are not required to keep their land open for public recreational use except in instances where an individual’s land that is enrolled exceeds 160 acres.

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May 2005 27 Town of Montello Comprehensive Plan

Map 2: Natural Resources

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May 2005 29 Town of Montello Comprehensive Plan

3. Drainage Basins The Town of Montello is located in the Upper Fox River Basin, which is subdivided into several smaller watersheds including the Buffalo and Puckaway Lakes Watershed, the Mon- tello River Watershed, the Lower Grand River Watershed, and the Mecan River Watershed (see Map 2). The northern portion of the Town lies in the Montello River Water- shed, which spans 152 square miles in total. The Montello River Water- shed is predominantly agricultural. There are also forested and wetland areas in the watershed. The streams in this watershed are generally high quality- there are several Class I and II trout streams. The Village of Westfield is the only municipal wastewater discharger operating in this watershed. The central portion of the Town lies in the Buffalo and Puckaway Lakes Watershed, spanning 232 square miles. This watershed is characterized by agricultural land, but also contains many wetlands. The City of Montello’s wastewater treatment plant discharges in this watershed. The Lower Grand River Watershed comprises the southeastern portion of the Town. This watershed is also characterized by agricultural land and wetland, the most notable of which is the Grand River Marsh State Wildlife Area located in the southeastern corner of the Town. A very small portion in the north part of the Town is located in the Mecan River Water- shed. The Mecan River and its tributaries support high quality cold water fisheries.

4. Surface Waters The Fox and Montello Rivers are prominent surface water features that have shaped development in the Town and City of Montello. The two rivers have their confluence in the southern part of the City. Each is impounded to create two large water bodies: Lake Mon- tello and Buffalo Lake. The Grand River also enters the southeastern corner of the Town. The Fox River was a historic exploratory route and primary commercial waterway. Today, the River and its impoundment support a warm water fishery, including largemouth bass, northern pike, walleye, and channel catfish. Concerns about the River include over-fishing, water quality, and water quantity. Buffalo Lake is a 2,210 acre shallow impoundment that extends approximately twelve miles southwest from the City of Montello, averaging 2,000 feet in width. Historically, Buffalo Lake was a natural lake; the Buffalo Lake of the Fox River dam in the City of Montello has caused the lake to expand substantially. The lake supports a warm water fishery. While

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the lake is a popular setting for residential development, boating can be difficult because of aquatic vegetation. There are two boat landings in the City limits: one owned by the City and one by the County. The Montello River meets the Fox River in the Lake Organizations City, just downstream of the Buffalo Lake Dam. This River has favorable water quality, with Landowner concern over degradation of abundant woodlands and wetlands buffering the the water quality and character of lake river. The Montello River rushes through the provided the impetus behind the forma- heart of downtown Montello. Two dams exist tion of organizations to address these on the Montello River; one at Harris Pond used issues. to generate electricity, and one at Montello. Lake organizations include lake associa- The dam at Montello creates the 286-acre tions and lake districts. Lake associations Montello Lake impoundment. The lake has a typically are financed through voluntary maximum depth of 17 feet. Although generally membership dues, whereas lake districts thought to be clear, the lake is fertile and is function through a property tax levy. reported to have excessive aquatic plant growth. Both also have some access to State or Whereas some of this may be due to natural other grants. nutrient loading, there is concern that polluted Lake Associations have a variety of pow- run-off may increase nutrient loads. The lake ers and functions, including acquisition hosts a warm water fishery and abundant of property, borrowing and investing waterfowl. There are three City parks located funds, habitat improvement, applying for along the shores of Montello Lake; one of these grants, maintaining lake access, and pur- is located at the confluence of the Montello and chasing sensitive areas. Fox Rivers. Lake Districts can levy taxes, monitor The Grand River enters the southeastern water quality, dredge, harvest or treat portion of the Town. A dam located in the vegetation, adopt and enact boating and neighboring Town of Buffalo creates the other ordinances, require inspection of flowage that is the main feature of the Grand private sewage systems, and fix and col- River Marsh State Wildlife Area. The Grand lect charges for solid waste disposal. River is considered a warm water sport fishery. Kilby Lake is one of several smaller lakes formed by the terminal moraine in the Montello area. This 50-acre lake has a warm water fishery and a sandy muck bottom. The City of Montello maintains a small boat launch on the southern shore of Kilby Lake. White Lake is a another lake located in the northeastern corner of the Town. This lake is fairly built-up. There is local concern about water quality and the use of personal water craft in White Lake. There is general concern regarding the water quality, access, and preservation of the Town’s lakes and water resources. The Town has several opportunities to enhance the quality and use of its valuable water resources. Improved water quality through standard clean-up, maintenance, and weed removal was identified as a community interest. Buffalo, Montello and White Lakes have active lake organizations. The Buffalo Lake Improvement Association and the Buffalo Lake Improvement District are both interested in the long term management and protection of water quality of Buffalo Lake. The Lake Im- provement Association supports studies conducted by the WisDNR, and the mechanical harvesting of weeds.

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The White Lake Management District and Landowners Association both include the landowners of the riparian landowners surrounding White Lake. These organizations deal with some of the issues affecting White Lake’s water quality, including run-off, non- functioning septic systems, exploration of future alternatives for sewage treatment, and recreational use of the lake. There are two dams located in the Town. One is a privately owned dam at Duffy’s Marsh classified by the WisDNR as a large dam. The second is a small abandoned dam on the Fox River (not shown on Map 2). There are two dams located in the City of Montello that help form Montello and Buffalo Lakes. These are classified by the WisDNR as large dams. The dams are still actively maintained and are designated “high hazard.” WisDNR had no plans for the dams at the time of writing the Plan. The DNR has, however, conducted periodic drawdowns that have been successful in improving water quality and helping to address sediment loading and siltation. A draw-downs was conducted on Montello Lake. This was reportedly successful at inhibiting growth of Eurasian water milfoil. Draw-down is considered one of the most economically feasible ways to deal with water quality issues, though it may be only a temporary fix to long-term problems that should be addressed on a broader watershed scale. In 2003, the WisDNR removed a non-functioning dam on the Grand River. The Town is interested in notification from the WisDNR as to when draw-downs and dam removals occur to enable the Town and landowners to stay current on water and impoundment management activities. (see process for this type of involvement later in this Chapter).

5. Floodplains In Wisconsin, seasonal floods are one of the most common types of natural disasters. The Federal Emergency Management Agency (FEMA) designates floodplain areas. These are areas predicted to be inundated with flood waters in the 100-year storm event (e.g., a storm that has a 1% chance of happening in any given year). The predictions are based on computer models. The State requires County regulation of development in floodplains. Map 2 shows the general boundaries of mapped floodplains; however, on the map some of these are obscured by wetlands and surface water to show the classification with the highest level of restriction. The National Flood Insurance Program maps produced by the FEMA should be referenced for official delineation and elevations of floodplain boundaries. Development is strongly discouraged in floodplains to avoid both on-site and up- and downstream property damage. Most of the southeastern area of the Town is in floodplain.

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6. Wetlands Wetlands are prominent throughout the Town of Montello. Wetlands are important for aquifer recharge, groundwater and surface water quality improvement, wildlife habitat, recreation, and aesthetics. Historically, wetlands have been impaired by agricultural drainage and non-farm development. Most of the wetland areas in the Town line the Fox River and its tributaries, with a particularly expansive wetland area located in the southeastern portion of the Town (see Map 2). Much of the land between 14th Road and Highway 22 in the south central part of the Town comprises Duffy’s Marsh, a 1,732 acre wetland restoration project. Landowners worked together with the USDA Natural Resource Conservation Service to restore this marsh. The land remains privately owned, with permanent easements to protect it into the future. Generally, County zoning restricts development in wetland areas and requires a 75 foot setback of construction from designated wetlands.

7. Groundwater Groundwater supplies nearly all of the water for domestic use in the Town of Montello. The quality of the Town’s groundwater is relatively good. According to data from the Central Wisconsin Groundwater Center in 2002, of the 560 private wells sampled in Mar- quette County, 7 percent tested with a nitrate (N) level over the health standard of 10 milli- grams per liter. This was one of the lower percentage readings in the entire East Central region. From the same data source, of the 652 private wells sampled for bacteria, 12 percent tested positive—similar to surrounding counties in the region. Areas susceptible to groundwater contamination have been identified by the WisDNR. Gen- erally, the Town of Montello has relatively low to moderate susceptibility to groundwater contamination. Some portions of the Town, in particular the areas extending to the north and south of the City of Montello are most susceptible to contamination. Such areas are generally characterized by relatively thin or sandy soils and fractured bedrock. This may factor into locational decisions for development on private wells versus development on the municipal water system from the City, which is less susceptible to contamination.

8. General Soils Information Varying soil types are distributed throughout the Town of Montello. These vary in terms of their drainage characteristics, permeability, and suitability for development and sewage disposal. Soil suitability is a key factor in determining the best and most cost-effective locations for new development. As defined by the United States Department of Agriculture, the soils in Montello are of four major types: The Oshtemo-Gotham soil association comprises much of the eastern part of the Town and the corridor along STH 22, which includes soils which are loamy underlain by sandy material at about three feet. This soil association poses few limitations for development and on-site sewage disposal. The Houghton-Adrain Association generally lines the Fox and Grand Rivers as well as the southwestern area of the Town west of STH 22, and includes organic soils underlain by stratified loamy and sandy soils at about three feet. These soils are very poorly drained. Most of the areas in these remain in native vegetation of sedges, grasses and reeds. In some areas the soils have been drained and cultivated. These soils are generally unsuitable for development or on-site sewage disposal.

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The soils in the Delton-Briggsville-Mundelein Association cover the far northeastern portion of Montello’s land area, and are generally sandy underlain by silty clay at about three feet. This soil association poses slight to moderate limitations for development and on-site sewage disposal. The Granby-Tedrow-Moundville Association are poorly drained and include the Ya- hara and Keowns soils. This association is distributed mostly in east-central parts of the Town. This association poses moderate to severe limitations for development and on- site sewage disposal.

9. Rare Species Occurrences WisDNR’s Natural Heritage Inventory program maintains data on the general location and status of rare, threatened, or endangered plant and animal species and natural communities in the State. This data is obtained through field inventory. As of December 2003, there were nine documented occurrences of rare or threatened species or communities in the Town. These included one bird, one lizard, two fish, two plants, and four natural community types. More specific information on location and type of species is available from the WisDNR’s Bureau of Endangered Resources.

10. State Wildlife Areas The Grand River Marsh State Wildlife Area is a 7,000 acre protected area spanning the boundary of Green Lake and Marquette Counties. This area provides excellent wildlife and waterfowl habitat. Hunting for geese and ducks is a popular activity. Other public uses include pheasant hunting, nature study, bird watching, canoeing, gathering, and hiking. Certain uses are restricted on the property, including off-road vehicle use, motor boats, and camp- ing. The Grand River enters the State-owned property from the east, flowing through for 7 miles. There is one primary flowage and two secondary flowages, generally providing an excellent aquatic and marsh environment. WisDNR maintains project boundaries for its wildlife areas, where land may be acquired from willing sellers as budget and resources permit. The project boundaries of the Grand River Marsh State Wildlife area are shown on Map 4.

B. NATURAL RESOURCE GOALS, OBJECTIVES AND POLICIES

Goal: Protect and enhance the natural resources in the Town of Montello.

Objectives: a. Preserve the Town’s groundwater, lakes, rivers, streams, wetlands, woodlands, wildlife habi- tats, and open spaces. b. Protect surface water and shoreline quality within the Town of Montello, especially on and along Buffalo Lake, Montello Lake, Kilby Lake, White Lake, the Fox River, and the Grand River. c. Pursue strategies in cooperation with the lake associations and districts, City of Montello, neighboring Towns, and the WisDNR that will help to improve the water quality, shoreland features, and access to the area’s shared water resources.

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d. Promote “community design” that directs development away from environmentally sensitive areas, particularly wetlands. e. Pursue opportunities that both support natural resource protection and the health of the rural economy.

Policies: a. Protect “environmental corridors” (shown on Map 4) as a composite of the Town’s most sensitive natural areas, including wetlands, floodplains, and steep slopes. b. Work to protect and improve surface water quality, public access, and shoreline conditions with the lake organizations, the City of Montello, and the WisDNR. Efforts might include supporting streambank management, natural shoreline restoration, erosion control, river clean-up initiatives, proper agricultural practices, stormwater management and use of vegetated buffer areas. c. Protect the quality of the Town’s surface waters and their fisheries as natural and economic resources through working with landowners, lake associations and districts, and the WisDNR to monitor water quality, identify potential sources of pollution, and maintain vegetative buffers to minimize the impacts of nearby development. d. Protect groundwater quality through encouraging the proper placement of new on-site wastewater systems and maintenance and replacement of older systems, encouraging new developments to utilize the municipal sewer system where appropriate and feasible near the City, and discouraging certain types of non-residential uses in areas susceptible to groundwater contamination. e. Support long-term woodland management efforts, such as by encouraging forest landowners to enroll in the Managed Forest Land Program. f. Work to protect rare species and wildlife habitat areas. g. Build on the Town’s natural resources to promote tourism and local economic development in cooperation with the City. h. Monitor dam maintenance, repair, removal and impoundment drawdown proposals in the Town. i. Carefully review proposals for metallic and non-metallic mineral extraction operations, requiring the submittal and careful review of site plans, operation plans, and reclama- tion plans and the protection of adjacent property owners, natural resources, and Town roads. j. Encourage soil conservation practices in agricultural activities, forest production, and new development.

C. NATURAL RESOURCE RECOMMENDATIONS Expanding on the policies listed above, this section provides specific recommendations for conserv- ing the Town’s natural areas.

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1. Protect Environmental Corridors Environmental corridors are, in effect, a composite of important individual elements of the natural resource base. They have immeasurable environmental, ecological, passive recreational, stormwater management, groundwater protection and recharge, erosion control, wildlife, timber, and scenic value. Environmental corridors also have severe limitations for development; therefore, minimizing development in these areas also protects private property. Environmental corridors generally occur in a linear (corridor) pattern on the landscape (see Map 4 for Environmental Corri- dor delineations). Environmental corridors include the following areas: Wisconsin DNR-identified wetlands as mapped in the Wisconsin Wetlands Inven- tory and subject to existing zoning control. This layer may not include all wetlands that are subject to State and/or federal disturbance rules. Protection from development should be provided to these areas (also shown on Map 2) as well as those identified through more detailed field surveys to preserve the significant natural functions that wetlands provide. Federal Emergency Management Association (FEMA) designated floodplains subject to existing zoning control. These general floodplain delineations represent the areas potentially subject to the 100-year flood. All areas of the County subject to flooding are not necessarily reflected in mapped floodplains (or within the environmental corridor delineation). The Town should protect areas within the 100-year floodplain as shown on Flood Insurance Rate Maps and more detailed surveys from development to avoid damage to property and the health, safety and welfare of the community. Lands with steep slopes of 20 percent or greater. Due to the instability of these soils and erosion concerns, development (including buildings and driveways) on these steep slopes is not advisable. There are a few small areas of steep slopes in the Town (shown on Map 2). New development should generally be discouraged in environmental corridors, and is often very limited by existing zoning. Existing farm fields, buildings and structures should be allowed to remain in environmental corridors. New homes and other buildings should not be placed in these areas if other, more appropriate, building sites are available outside the environmental corridor. Sensitivity to surrounding natural resources should be the guiding principal when reviewing the appropriateness of development in and near mapped environmental corridors. Vegetated buffer strips between the development area and the edge of the environmental corridor are important. The environmental corridors depicted in Map 4 are necessarily general and should be used to identify general areas where development may not be appropriate. Lands within that designation may be removed under one or more of the following circumstances:

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More detailed study reveals that the characteristic(s) which originally resulted in its designation as an environmental corridor no longer exists, never existed, or exists in a different location or configuration on the site, or Approvals from appropriate agencies are granted to alter a property so that the characteristic which resulted in its classification as an environmental corridor will no longer exist, or A mapping error has been identified.

2. Protect Surface Water Quality The Town’s surface waters, including Buffalo, Montello, and White Lakes; the Fox River; and the Grand River, are valued local resources that nine out of ten Town residents viewed as a priority for protection, according to the community survey. Several efforts at the State level that impact water quality planning and regulation have been undertaken in recent years. In 2002, WisDNR and DATCP established administrative rules to address nonpoint pollution sources (i.e. where contaminants do not come from a pipe or other easily identifiable sources). Much of the work for implementing the rules will be carried out by County land and water conservation staff. The 1999 Marquette County Land and Water Resource Management Plan advocated many recommendations designed to protect and enhance water quality. It recommended an update to the County’s 1994 Animal Waste Stor- age Ordinance to incorporate updated standards and specifications, and the on-going commitment to promote landowner participation in grant programs. This Town Comprehensive Plan does not seek to cover all of these efforts in depth. Instead, general recommendations designed to protect water quality in the Town water are offered below.

a. River and Lake Management Programs Protecting the rivers and lakes is an objective that should extend beyond the boundaries of the Town. The Town may wish to participate and cooperate with the lake associations and districts, the City of Montello, WisDNR, Marquette County, and other neighboring communities, such as the Town of Packwaukee, to develop and implement strategies to protect these resources from degradation. The Town and the above organizations and governments may also wish to explore additional recreational and access opportunities. The Town could work with the City , other governments and organizations to organize and sponsor a lake, river or stream clean- up program for local residents who want to learn more about and improve the quality of Montello and Buffalo Lakes. The Town

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could utilize the support, information materials, “how-to” packets, press releases, and potential sponsor lists from Wisconsin’s Water Action Volunteers --a program coordinated through a partnership between WisDNR and UW Extension. The Town should also stay informed and pursue funding through WisDNR programs that fund river and lake management. Buffalo Lake Association is in the process of pursuing funding through the Lake Protection Grant program, which is available to improve quality of lakes and their ecosystems. Potential protection mechanisms that this grant could fund include purchase of land or easements, wetland restoration, development of local regulations to protect water quality, and other lake improvement activities. Other sources of funding, including Community Conservation Aids, Lake Management Planning Grants, and Local Water Quality Management Planning Aids are also available to the Town or lake organizations.

b. Vegetative Buffers Vegetated buffers provide many benefits, including the protection of water quality, flood control, stream bank stabilization, water temperature control for the Town’s lakes and streams, and room for lateral movement of stream channels. Trees and shrubs retained in buffer areas provide the benefit of buffering noise from watercraft, providing privacy to residents, and serving as nesting areas for songbirds. Use of pesticides, fertilizers, and herbicides in these areas should be discouraged. The Marquette County Shoreland Zon- ing ordinance regulates the removal of vegetation in a “vegetation protection area,” which extends from the ordinary high water mark of navigable waters to 35 inland. Wider buffer areas should be encouraged around high-quality waters, and areas where particular water quality concerns have been identified.

Figure 9: Example of Vegetative Buffer

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c. Erosion Control and Stormwater Management Plans Unmanaged construction sites are one of the greatest contributors to off-site sediment runoff. Under a recent change to State law, erosion control plans are required for all construction sites over 1 acre in area. The Town should help ensure erosion control and stormwater management techniques for protection and continued improvement of its water quality. In particular, stormwater management and erosion control systems should be components of planned new development areas, including subdivisions and commercial projects. Erosion control techniques include silt fencing, minimizing disturbed areas, and quickly reestablishing vegetation. Ongoing stormwater management techniques include natural drainage swales and retention and detention basins. These techniques control the quantity and improve the quality of water run-off during storms and enhance groundwater recharge. This is particularly critical near sensitive waters such and lakes where there are water quality concerns, such as Buffalo and Montello Lakes.

d. Lake Quality Assessment The Town has lake organizations (associations and districts) that have taken a proactive role in the management and protection of water quality in the Town’s lakes. In addition to promoting and encouraging the specific activities of each of these organizations, the Town might support a countywide effort to adopt and implement a lakes classification system. Lakes classification is a management tool that helps protect an area’s lakes by applying protection strategies based on certain lake characteristics. Lake classification systems generally consider the type, size, shape, and location of a water body and the intensity of surrounding development or land use activities. Lakes can be grouped based on hydrology, average depth, surface area, shoreline configuration, susceptibility to pollution, and sensitivity to recreational use. Many places have also included streams and rivers in their classification systems. Lakes classification may be a way for the Town to consider the range of considerations that apply to all of its water bodies, and help to guide recommendations for buffer areas and appropriate types of uses surrounding each lake and river.

3. Protect Groundwater Quality and Quantity Groundwater is the source for nearly all of the Town’s drinking water supply. If groundwater is removed from an aquifer more quickly than it is recharged, the amount of water available in the aquifer is reduced. This may be of particular concern where water tables are dropping from groundwater use in portions of the Town with high concentrations of dwelling units. In addition, groundwater recharges local rivers and streams. For these reasons, groundwater protection is critical. This Plan supports several efforts to protect groundwater quality and quantity, including the following: Avoid planning for new development within about ¼ mile of closed landfills in the Town. To protect drinking water quality and public health and safety, the WisDNR requires a separation of 1,200 feet (a little less than ¼ mile) between open or closed landfills and nearby private water supply wells. This separation is measured from the edge of the nearest exaction area or, if unknown because it’s a filled site, from the site’s property line. There are two closed landfill sites in the Montello area that are documented. They are shown on Maps 3 and 4. In order to drill a well in this 1,200 foot area, a variance must be obtained from the WisDNR. In considering variances for wells in these buffer areas, the WisDNR considers water flow direction, existing contamination through sam-

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pling, how individual landfills have been used, and any proposed potential well protection measures. Existing residential development shown in the private well setback area may pre-date WisDNR regulations, or may have been granted a variance. This is the case for the new development near the City landfill. Additional development and siting of private wells in this area is discouraged. Remain informed and involved in decisions pertaining to high-capacity wells. Permits for high capacity wells (those withdrawing more than 100,000 gallons per day) must be registered with and permitted by WisDNR. The DNR will not approve wells that impair public water utility supplies. The WisDNR has the authority to deny applications for high-capacity wells should they have the potential to adversely affect the environment. Wells drawing more than 2 million gallons per day are evaluated in terms of whether they impair public water rights, future water use plans, or cause adverse groundwater effects. Should potential new sites be proposed in Montello over the planning period, the Town should remain informed and involved in any WisDNR decisions regarding high-capacity well decisions. One way to stay involved in through regular communication and providing public comment during Environmental Impact Statement review periods. The Town could also consider participating in cooperative groundwater management plans with municipalities, industries, local and regional planning agencies, and State agencies where appropriate, should special groundwater protection priority areas be delineated in the future. Minimize new development in areas susceptible to groundwater contamination. The Town should consider limiting the location of commercial uses with the potential to emit pollutants into the soil or groundwater in portions of the Town more highly susceptible to groundwater contamination. In particular, precautions should be used in siting gas stations or other uses that store fuel or other potential contaminants. The southwest portion of the Town, northeast of the City boundary spanning STH 22, and land south of the City of Montello are areas more susceptible to contamination.

4. Support Woodland Management Efforts The Town’s woodlands are an important component of the area’s landscape and character, as well as the recreational base and rural economy. These woodlands provide timber revenues to private landowners and abundant recreational opportunities for both residents and visitors. Development located near and within the Town’s woodlands should be planned and sited in a matter that does not degrade the woodlands. As a method to preserve this important natural resource over the planning period, the Town should encourage private landowners to participate in the State’s Managed Forest Land (MFL) Program. Adhering to a forest management plan—prepared for each piece of MFL- enrolled property—is a requirement of the program. In general, this Plan recommends that before any logging activities commence in Montello, the private landowner or contractor prepare a forest management plan. This plan, covering activities from road construction, timber harvesting and site preparation, should use WisDNR’s Best Management Practices (or BMPs). BMPs help to reduce erosion to ensure long term woodland maintenance, and promote their economic utilization. WisDNR has cost-sharing assistance for plans written by a consulting forester, or assisted by the regional WisDNR forester.

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The WisDNR also administers funding to encourage stewardship and sound management of privately owned forested lands. These include forest stewardship grants and incentives supporting technical assistance, informational and educational materials; plans for practices that protect, maintain, and enhance forest resources including wetlands, lakes and streams; tree planting and stand improvement; soil and water protection; and other habitat enhancements. This Plan also recommends several strategies to prevent or minimize wildfire damage: Chapter Four addresses issues related to access, road and property fire number identifi- cation, and overall road circulation to properly respond to a wildfire. Chapter Five provides recommendations on the types of facilities and services that could improve local emergency preparedness for wildfires. Chapter Six presents specific recommendations on preventative measures that could be used around a private lot and home to mitigate wildfire damage and spreading.

5. Protect Rare Species and Wildlife Habitat Areas Not only does protecting wildlife and its habitat benefit the environment, but it enhances the quality of residents’ lives, preserves rural character, increases pride and stewardship in private land ownership, and enhances recreation and tourism. Preserving habitat and protecting rare species at the local level may also minimize the potential that a species will officially become “threatened” or “endangered,” requiring federal intervention under the En- dangered Species Act. The WisDNR—Bureau of Endangered Resources maintains a database enti- tled the Wisconsin Natural Heritage Inventory (NHI). Map 2 shows all sections in the Town where rare plant or animal species and natural communities have been documented. Rare species have been identified in several sections of the Town where new development is planned, including the area planned for commercial and residential uses adjacent to the City. Because rare species are vulnerable to collection and intentional destruction, the exact locations and type of rare species is not made readily accessible. However, this data is available through submittal of a “Wisconsin Natural Heritage Inventory Request Form,” which the Town should require whenever a new subdivision or development proposal is offered within a section of land where a rare species has been identified. Beyond simple determination, specific measures should be taken to minimize the effects of development on rare species and their habitat. Strategies include encouraging developers to minimize the “footprint” of development, util- izing vegetative buffers to provide connectivity between habitat areas and create a more sensitive land use transition, encouraging natural landscaping, and directing development outside of environmental corridors.

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6. Build on the Town’s Natural Resources to Promote Tourism The possibility for expanding Montello’s role in a nature-based tourism economy provides the opportunity for area residents to enjoy financial benefits of increased recreation-based economic development while simultaneously preserving the area’s environment. The area’s abundant natural areas, park and open space, and water features are particularly well-suited to attract growth in fishing, paddling, and wildlife watching. The Fox and Grand River, Montello and Buffalo Lakes and the smaller lakes and streams provide excellent ven- ues for boating, fishing, paddling, and other water recreation activities. Montello should promote opportunities for tourist and locals alike to explore and enjoy natural resources, and businesses that cater to these types of activities in partnership with the City and the County. These businesses should be directed to areas planned for such purposes, as shown on Map 4. The Grand River Marsh State Wildlife Area is a good location for viewing wildlife in their natural habitat, and for visitors to experience a quiet and peaceful environment. Birding has become big business. There was a movement to establish The Great Wisconsin Birding Trail, a proposed statewide auto trail that would lead people to parks, historic sites, rivers, lakes, and biking trails in Wisconsin, at the time this Plan was written. This Plan recommends that the Town, working with the County, chambers of commerce, and private organizations, identify potential sites or a countywide “Trail Loop” system for nomination on The Great Wisconsin Birding Trail.

7. Monitor Impoundment Drawdowns and Dam Maintenance and Repair Proposals A change in water surface level or water flow due to drawdowns and dam removals can have significant impacts not only the water resource, but also the enjoyment and use of the resource by local residents and visitors. This Plan recommends that the Town of Montello be kept notified and involved in any future decisions involving river impoundment drawdowns and dam removals: Impoundment drawdown is used for many purposes at a dam site: conducting repairs on an unsafe dam structure, controlling invasive species, or enhancing the habitat for certain species of aquatic plants, fisheries, and wildlife. In Montello Lake, a draw-down was recently conducted (winter 2002-03) to control weed growth. Emergency drawdowns typically occur when a dam is in need of immediate repair for safety reasons. In non-emergency cases, the drawdown should follow a certain process. The drawdown is typically initiated by the dam owner, the WisDNR, or a lake district or association. A detailed assessment should follow the initial request, including an aquatic plant survey. Where there are formally established water levels, WisDNR is required to conduct an Environmental Assessment prior to the drawdown. The Environmental Assessment includes a consideration of fisheries, wildlife, endangered resources, vegetation, and a broad range of other potential impacts, and management alternatives. The Environmental Assessment process is also required to incorporate public comments and include at least one public meeting or hearing on the proposed drawdown activity. Based on the Environmental Assessment and the results of the public meeting, the drawdown activity may be approved or denied. The Town of Montello has several opportunities to get involved in the impoundment drawdown process: Landowners, lake associations, or lake districts may initiate a drawdown for dam repair, habitat enhancement, or lake management purposes

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Individuals and organizations can review and comment on the WisDNR’s Environ- mental Assessment. In cases where an Environmental Assessment is not required, comments from local groups, communities, and individuals are encouraged via WisDNR regional or central office staff Attend and provide feedback at the required public meeting and/or hearing Over the planning period, any change in water surface level or water flow due to dam repair or removal can have significant impacts not only the water resource, but also the enjoyment and use of the resource by local residents and visitors. This Plan recommends that the Town request notification in order to remain involved in any decisions involving dam maintenance, repair, or removal. When repair is deemed less desirable from a financial, safety or ecological standpoint, dam removal may be an option. Decisions to remove or repair any dam should be based on a careful analysis of economic, social, and environmental factors. The decision to remove an unsafe or abandoned dam can be made only after an established protocol is followed. This process generally consists of: Inspection of dam by a certified engineer Contact and notification to dam owner of any problems or hazards that exist An official order to repair the dam to meet standards, or dam removal Public information session Notification and/or opportunity for public hearing prior to WisDNR action (Chapter 31 of Wisconsin Statutes) If dam removal is pursued, an Environmental Assessment or Environmental Impact Statement may be required The Town should work closely with the City and the WisDNR to consider dam management options should issues with any of the Montello area dams arise, particularly considering the fact that the two dams located in the City are evaluated high hazard dams. Aging dams or those in need of repair may be community safety hazards and cause environmental degradation. However, the removal of any of the area’s dams, in particular the Fox River dam, could have significant impacts on property use and values along the lakes that should be factored.

D. AGRICULTURAL RESOURCE INVENTORY Agricultural land and open space resources help to define the rural character of the Town. The following is an overview of the character, location, and viability of farming activity in the Town.

1. Character of Farming Trends in agricultural land use and conversion in the Town have generally followed those of the region and County. Between 1990 and 1997, the number of farms in the Town of Montello increased from 31 to 32. Between 1990 and 1997, of 1,501 acres of land sold, 680 acres were converted out of agriculture- a conversion of about 45 percent of the Town of Montello’s farmland to other uses during this time period according to the Program on Agricultural Technology Studies at the University of Wisconsin. The average

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sales price for land continuing in agriculture was reported as $431 per acre, whereas that converted out of agriculture sold for an average price of $525 per acre. Town residents be- lieve this number is low.

2. Assessment of Farmland Viability The U.S. Soil Conservation Service ranks soil suitability for different uses into eight capabil- ity classes, with Class I soils being considered the best farmland, and Class VIII soils being useful for recreational purposes or natural habitat areas only. Class I and II soils cover a small portion of the northeastern part of the Town. (see shaded areas on Figure 10.) When drained, these areas are well-suited to agricultural uses with soils that have good tex- tures, moderate permeability, adequate dept and, low erodability. However, many of these areas are in wetlands, floodplains, or both. Class III and IV soils make up the remainder of the Town’s land area. These soils have moderate to severe limitations which reduce the number and type of crops that can be grown and require special conservation practices to prevent erosion.

Figure 10: Soil Suitability for Agriculture

E. AGRICULTURAL RESOURCE GOALS, OBJECTIVES, AND POLICES

Goal: Preserve productive farmland for continued agricultural use

Objectives: a. Protect intensive farm operations from incompatible land uses and activities. b. In productive farming areas, limit the amount of non-farm uses to minimize conflict. c. Work to preserve farming as a viable occupation, way of life, and open space preservation strategy.

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Policies: a. Evaluate zoning options for areas of the Town planned for long term agricultural use. The current zoning of those lands, particularly General Agriculture (AG-3) allows quite a bit of residential development (e.g. 2 acre lots), which may result in land use conflicts and the breaking up of agricultural land. b. Promote the continuation of the “family” farm by supporting agriculture-support businesses, and providing opportunities for small non-farm businesses to supplement farm income. c. Support efforts to regulate large-scale livestock operations and to mitigate their impacts as to minimize adverse effects on the environment or nearby land owners. d. Encourage long-term farmers to enroll in the State’s Farmland Preservation Program.

F. AGRICULTURAL RESOURCE RECOMMENDATIONS Expanding on the local planning policies listed above, this Plan advises the following strategies to preserve the Town’s farmland:

1. Minimize Development in Productive Farming Areas This Plan recommends that the Town support the continuation of productive farming operations by seeking to minimize the amount of non-farm development in and around these farmlands. A large amount of residential development in agricultural areas makes farming extremely difficult to continue. There are numerous conflicts between such uses, including noise, odors, use of roads, and hours of operation. Further, more nonagricultural uses in farming areas bring a sense of impermanence, which discourages further investment by remaining farmers. As described more fully in Chapter Three: Land Use, the Town mapped the Rural Lands designation over areas suitable for farming use. Rural Lands areas are recommended for a housing density of generally not more than one home per 10 acres. Marquette County’s General Agricultural (AG-2) and Resource Protection (RP) zoning districts are the most compatible districts to guide development in the Town’s planned Ru- ral Lands area. Future platting and development in these areas could adhere to the clustering concept depicted in Figure 14. This clustering concept (discussed more fully in Chapter Six: Housing and Neighborhood Develop- ment) also advocates guiding available homesites

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away from productive farm soils—perhaps in an adjacent woodlot, at the edge of a tilled field, or on other soils with low productivity. However, certain revisions are necessary in the County’s zoning and subdivision ordinances to allow the cluster-type development advocated in this Plan. A complete discussion of tools to implement this recommended Rural Lands designation is discussed in Chapter Nine: Implementation.

2. Promote the Continuation of the Family Farm The Town planning process showed support for the “family farm.” Interested parties can work locally on a variety of efforts to improve farm family income. These efforts may include working: With UW-Extension and County staff to increase efficiency in farm operations, provide technical assistance including exploring alternative farming techniques (e.g., grazing), and provide advice on other financial and technical support opportunities. To promote specialty agriculture, directed primarily to providing food and products for the local market. On the demand side, the farmers could work with local stores to promote sales of local products and help develop farmers markets. Strategies to promote value-added agriculture, directly market farm products to consumers, and promote agricultural-based tourism are provided in Chapter Seven: Economic Development. With the County to continue to allow “cottage industries” and other farm family businesses in the County’s agricultural zoning districts, and provide additional opportunities as appropriate.

3. Support Efforts to Monitor Large-Scale Livestock Operations A growing number of dairy operations across the State have began expanding their herd size and modernizing their facilities to increase productivity and competitiveness. These “mega farms” are increasingly raising concern among neighboring farmers, landowners, and residents because of the intensity of the operation and their impact on local roads, adjacent land uses and the environment. This Plan supports recent State efforts to ensure that the impacts of large-scale livestock operations do not degrade the environment or disturb neighboring uses. In April 2004, the State enacted new legislation intended to create a more predictable framework for County and municipal decisions to site or expand large-scale livestock facilities in Wisconsin. The new law directs the Department of Agriculture, Trade and Consumer Protection (DATCP) to appoint a panel of experts to develop a list of performance standards for the siting of new or the expansion of existing livestock operations with 500 or more animal units. If a local government chooses to regulate livestock facilities through their zoning ordinance, it must use the performance standards set by DATCP when deciding to approve or deny a proposed facility. In general, a local government will have difficulty deny- ing any proposed siting or expansion of a livestock facility if there is a determination that the operator complies with DATCP standards. Local governments may apply more stringent standards than the ones established by DATCP if it adopts them by ordinance based on “reasonable and scientifically defensible” findings that demonstrate a health or safety need. The livestock operator and any person who lives or owns land within two miles of the livestock facility may appeal the decision made by the local government on the grounds that the

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community either incorrectly applied the statewide performance standards, or lacks the statutory authority to approve or deny applications. The Town should continue to monitor the progress of these DATCP practices and standards and explore what options are available to the Town and County to incorporate these standards in the existing zoning ordinance. At a minimum, this Plan advocates the following practices for large-scale livestock operations: Proper siting and design of manure storage facilities: Large farm operators should carefully consider the siting and design of manure storage facilities. Improper storage of manure may cause pollution of groundwater or surface water. Common types of storage facilities include walled enclosures, storage ponds (or earthen facilities), aboveground tanks, and underground storage (typically beneath confined freestall buildings). Each facility has different site limitations, costs, and labor requirements. Control runoff from areas where manure is concentrated: Large farm operators should prevent rain and melting snow from washing manure nutrients and bacteria into nearby drainageways, streams and lakes. Common practices include the placement of rain gutters, downspouts and outlets on all buildings near manure-covered areas; divert- ing water away from a barn or feedlot by building a berm or dredging a channel; constructing a settling basin at the lower end of the feedlot that allows runoff water to leave the yard at a controlled rate; or installing a filter strip or buffer area at the lower end of the feedlot to trap nutrients and suspended material. Careful application of manure fertilizer: Large farm operators should spread their manure fertilizer according to a nutrient management plan to protect water quality and maximize the benefit from manure. The key is to put manure in known places at known rates. Too much manure application or allowing runoff from spreading sites can result in polluted streams, lakes or groundwater, without any increases in productivity. Protect streambanks and shoreline areas: Farm operators should restrict their cattle herd’s access into any streams or shorelines within the grazing areas. When cattle are concentrated along stream banks and shorelines, bank erosion and manure can threaten water quality and fish habitat. Several practices can allow cattle access to water while protecting banks and shorelines. These include installing fencing, constructing stream cross- ings and access ramps, or pumping water to a location away from the stream. Ensure that the large-scale operation does not overburden Town roads. State stat- ues allow Town or County governments in charge of road maintenance to impose special weight limits on roads under their jurisdiction. As part of this authority, local governments can exempt certain vehicles servicing a large-scale livestock operation from the posted weight limits as long as they provide financial assurances to cover damage caused by their road usage. These heavier servicing vehicles could also be required to remove debris deposited on a posted road. The Town should review a publication (April 2003) by DATCP titled “Livestock Guidance: Lo- cal Planning for Livestock Operations in Wisconsin” for more specific strategies to plan for this type of land use. This publication provides specific help for communities seeking to respond to changes in the livestock industry. In addition to planning guidance, this publication dis- cusses a system of multiple agricultural zoning districts including a special district for intensive agriculture such as large livestock operations—a strategy that could be considered in Marquette County. Methods of establishing stipulated agreements as an alternative to a

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conditional use permit for construction or expansion of livestock operations are also discussed. During the interim period as DATCP establishes its performance standards, the Town should actively ensure that it is properly notified when any landowner wants to raise their operation to over 1,000 animal units. WisDNR requires concentrated animal feeding operations (CAFOs) with 1,000 or more animal units to obtain a permit. This permit is called a Wisconsin Pollutant Discharge Elimination System (WPDES) Concentrated Animal Feeding Operation (CAFO) permit—or a WPDES CAFO permit. These permits are designed to ensure that farm operations choosing to expand to 1,000 animal units or more use proper planning, construction, and manure management practices to protect water quality from adverse impacts. At the time of writing, there was one large-scale farm operation in Marquette County regulated under this permit program, but not in the Town of Montello. Before submitting a WPDES CAFO permit application to operate a feedlot with 1,000 or more animal units, this Plan recommends that the landowner submit a site plan for the proposed operation for Town review. This site plan should demonstrate how the landowner intends to mitigate traffic impacts, nuisance issues, and manure storage and water quality impacts associated with this large-scale operation. The landowner should meet with the Town Plan Commission or Board to discuss the submitted site plan. The site plan should include the same information as required for the WPDES CAFO permit application. This includes: The location of the existing and proposed site on plat maps, aerial photographs, and soil survey maps. Scaled drawing(s) locating animal housing, waste storage facilities, runoff controls, groundwater monitoring wells, loafing or outside lot areas, feed storage structures and water supply wells. A description of proposed and existing waste storage facilities, and a nutrient management plan. A description of proposed and existing runoff control systems, groundwater monitoring systems, permanent spray irrigation or other landspreading systems. Information on current and future animal units and expected expansion dates. A narrative containing background information on the operation as it exists and how it will function after the planned construction or expansion. A proposed CAFO usually requires a public hearing. Town review of this site plan, and subsequent discussions with the landowner, will serve as the basis for the Town’s submittal of a formal letter to WisDNR during the public comment period of the WPDES CAFO permitting process. This letter will indicate whether or not the site plan was submitted for Town review, and will include any findings or concerns related to the proposed operation. The Town should contact the Agricultural Runoff Management Specialist in the WisDNR Northeast Regional Office to formally request, in writing, that the Town be notified of all public comment periods related to a CAFO permit request in Montello.

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4. Encourage Enrollment in State’s Farmland Preservation Program Marquette County’s Farmland Preservation Plan was adopted in 1982. It enables long-term farmers to receive income tax credits if they enter into an agreement to keep their land in farming under the State’s Farmland Preservation Program. In 2004, there were no Montello landowners participating in this program. The Town should explore the benefits of this program and encourage landowners to enroll as a means to preserve long-term farm operations. Montello landowners can enter into individual contracts if their land is 35 acres or more and mapped as a “Farmland Preservation Area” in the County’s Farmland Preservation Plan.

G. CULTURAL RESOURCE INVENTORY The Town of Montello and the entire region was once home to several tribal Native Ameri- can groups. The three prominent Native American tribes in the region were the Menominee, Chippewa, and the Ho-Chunk (or Winnebago). In 1673 French Jesuit priest Jacques Marquette and explorer Louis Joliet were the first Europeans to travel the entire length of the Fox River. From these early beginnings until the 1830s, fur trading was the main activity of European im- migrants arrived in the region in the mid-1800s, with British, Irish, and German settlers favoring Marquette County. By 2000, about 45 percent of the County’s population reported German ancestry, followed by 12 percent reporting Irish ancestry. The first land claim in the Montello area was made in 1849, by Josiah Dartt whose claim included the site of the dam on the Montello River. In 1850 the dam was completed, a saw mill erected, and the first frame building (a store) was built. This same year, a frame hotel and the post office were built. During this and the following years, the population of Montello and the surrounding area expanded, and businesses and trade flourished. Each succession of ethnic groups and each generation of residents have added to the cultural, religious, and architectural flavor of the region. Preservation of these historic and cultural resources fosters a sense of pride, improves quality of life, and provides an important feel- ing of social and cultural continuity between the past, present and future. The following sections describe the Town of Montello’s significant historic and archeological resources.

1. Historic Resources Montello’s rural landscape is defined by several historic settlements and structures. There are numerous properties in Montello listed as local historic resources in the State Historical So- ciety’s database. The Society’s Architecture and History Inventory (AHI) contains data on a wide range of historic properties throughout the State—such as round barns, cast iron bridges, commercial buildings, school houses, and turn-of-the-century homes—that create Wisconsin’s distinct cultural landscape. The AHI includes 77 documented properties in the Town of Mon- tello. Many of these are located along CTH K and C. Listed properties include the historic Oak Leaves Resort, Breitenbach’s Resort, the Buffalo Lake Lodge Cottages, and several homes of various periods and styles. The Fountain Lake Farm, a site from the mid 1800s, is listed on the Federal and State Historical Registers. This is located at CTH F and Gil- lette Road.

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The City of Montello has three sites or districts listed on the Wisconsin and National Regis- ter of Historic Places. These include the Beaux Arts Style Marquette County Courthouse and Marquette County Sheriff’s Office and Jail, the Montello Commercial Historic District, and The Charles Samuel Richter House. To preserve and promote these types of historic resources, the Marquette County Historic Society Museum, located in Westfield, showcases an extensive collection of artifacts, dating from the area’s earliest pioneering days through the mid-twentieth century. The Montello Historic Preservation Society is also an active local historic preservation organization.

2. Archeological Resources There are 42 archeological sites within the Town of Montello designated by the Wisconsin State Historical Society. These sites include cemeteries/burial sites, effigy mounds, and campsites/villages. All human burial sites, including cemeteries and Indian mounds, are protected under State law. All human burial sites, including cemeteries and Indian mounds, are protected under State law. The National Historic Preservation Act of 1966 requires federal agencies to insure that their actions do not adversely affect archeological sites on or eligible for listing on the National Register of Historic Places. Archeological sites can be protected during the course of State agency activities if the sites have been recorded with the Office of the State Archeologist.

H. CULTURAL RESOURCE GOALS, OBJECTIVES, AND POLICIES

Goal: Preserve the Town’s scenic, historic, and rural character.

Objectives: a. Identify and promote the preservation of the Town’s cultural, historic, and archeological resources. b. Cooperate with the City to promote the historic and cultural character of the Montello community. c. Preserve large blocks of woodlands, hunting land, river corridors, natural waterfronts, wetlands, and open space that contribute to Montello’s rural character, scenic beauty, and way of life. d. Protect the winding, lightly-traveled roadways that contribute to the Town’s scenic quality and outdoor recreation opportunities.

Policies: a. Encourage private landowners to protect and rehabilitate historic and archeological sites, and incorporate them into the planning of new development areas where appropriate. b. Work with the City of Montello to promote “heritage tourism” (e.g., local festivals, fairs, farm tours, and markets) that celebrates the heritage and rural setting of the combined “Montello community.” c. Consider cooperating on a comprehensive survey of historic and archeological resources.

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d. Preserve and celebrate the scenic landscape and byways in the Town by considering scenic impacts when reviewing proposals for new development and encouraging commercial and industrial development requiring sewer and water to locate in the City.

I. CULTURAL RESOURCE RECOMMENDATIONS Expanding on the local planning policies listed above, this Plan encourages the Town of Mon- tello to preserve and celebrate its treasured cultural resources by pursuing the following strategies:

1. Protect and Rehabilitate Known Historic and Archeological Sites This Plan identifies known historic and archeological sites that are included in the Wiscon- sin Archeological Site Inventory (ASI) and the State Historic Society databases (see Map 2). Under Wisconsin law, Native American burial mounds, unmarked burials, and all marked and unmarked cemeteries are protected from intentional disturbance. This Plan advises that the Town make a specific request to the State Historical Society for more detailed information when development proposal is offered on land in an area where a historic or archeological site has been identified.

2. Promote Heritage Tourism County Survey of Historic and The Town should consider cooperating Archeological Resources with others to promote tourism op- This type of comprehensive survey would in- portunities that celebrate and take volve two separate but related processes— re- economic advantage of the area’s search and field work. Research involves col- historic, archeological and scenic lecting and organizing historic data, including resources, including the lakes, agricul- documents, photographs, and information tural and forested land, and the historic from every conceivable source. Field work settlement within the Montello area. could be conducted by volunteers, local offi- This type of tourism—often called cials, students, interns, and others. However, as “Heritage Tourism”—will become in- a general rule, only trained archeologists or stu- creasingly popular as the baby boom dents under professional supervision should generation eases into retirement. Heri- conduct archeological surveys. Before complet- tage tourism may focus on museums ing a survey, Marquette County and its partner and cultural centers, vibrant rural communities should consult with the State His- communities, historic architecture, historical Society on the proper procedures and toric settlement patterns and the grant funding opportunities. Town’s natural amenities and views. Agricultural tourism highlighting both Techniques for preservation of these historic or traditional agriculture and organic archeological resources may include renovation farms has also been successful in the design guidelines, historic preservation ordi- region, such as seasonal farm events nances, demolition standards, amendments to with pumpkin patches, sleigh ridges, subdivision regulations, and/or registration on corn mazes or tours of organic farms. the State and/or National Register of Historic The Town, along with the City, the Places. Such registration makes properties eligi- Montello Area Historic Preservation ble for restoration funding and tax credits. Re- Society, Marquette County, and its storing economic value to historic properties Economic Development Corporation, should not be underestimated as a preservation technique.

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should explore State grant opportunities to study, establish, and fund a heritage tourism program.

3. Cooperate on a Comprehensive Survey of Historic and Archeological Re- sources Although there are many sites listed on the State Archeological Site Inventory and Architec- tural and Historical Inventory, very little of Marquette County’s total land area has been sur- veyed for the presence of archaeological sites and cemeteries, and there has never been a comprehensive survey of historic resources in Marquette County. At least as many historic or archeological sites are lost to ignorance of their significance than to intentional acts. The Town should consider cooperating with the County and other local governments on a countywide survey of historic and archeological resources (see sidebar for more information).

4. Preserve and Celebrate the Scenic Landscape Scenic beauty is a very important cultural resource in the Town of Montello. There are numerous local areas that offer expansive views of the landscape, key landmarks (e.g., hills), and bodies of water. Areas identified as having high scenic value include the Town’s abundant water resources, the State Wildlife Area, marshes, wetlands, and small woodlands. New development should be designed, located, and landscaped in a manner that does not detract from these scenic views. Chapter Six: Housing and Neighborhood Development provides additional guidance on minimizing the visual impact of development. The State “rustic road” program can help preserve and celebrate particularly scenic roads. To qualify, a roadway must be substantially undeveloped and have outstanding natural features— including native vegetation, abundant wildlife, open areas, or agricultural vistas—that make the area unique.

5. Park, Open Space, Recreational and Community Design Resources The planning goals, objectives, policies, maps and programs related to park, open space, and recreational resources in Town of Montello are presented in Chapter Five: Utilities and Community Facilities. Goals, objectives, policies, maps, and programs related to community design are presented in Chapter Three: Land Use and Chapter Seven: Economic Develop- ment.

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CHAPTER THREE: LAND USE

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This chapter contains a compilation of background information, goals, objectives, policies and recommended programs to guide the future preservation and development of lands in the Town of Montello. The chapter includes maps that show existing land uses and recommended future land uses.

A. EXISTING LAND USE An accurate depiction of Montello’s existing land use pattern is the first step in planning for a desired future land use pattern. The consultant conducted an inventory of existing land uses in the summer of 2003, which was corrected by local representatives.

1. Existing Land Use Map Categories Map 3 divides existing land uses in the Town of Montello into several categories: Agriculture & Rural Lands: land used primarily for open space, farming, farmsteads, nurs- eries, farm-support activities, and limited single-family residential development, generally with densities at or below 1 dwelling unit per 40 acres, and small-scale institutional uses not separately identified, such as cemeteries, churches and town hall buildings; Wetlands: Wetlands over two acres identified through the Wisconsin DNR “Wisconsin Wetland Inventory.” Many of these wetlands may also be forested; Public Open Space: publicly-owned land designated as State parks and scenic areas; State conservation or wildlife areas; conservancy land owned by non-profit agencies; County parks and recreation areas; town parks, City parks, or other recreational facilities owned by the public or private utility companies; Forest: privately-owned forest land covered with coniferous, broad-leaved deciduous, or mixed deciduous trees, in certain cases including private recreational uses or single-family residential development generally with densities at or below 1 dwelling unit per 40 acres; Surface Water: lakes, rivers and perennial streams; Single Family Residential - Rural: groupings of predominantly single family residential development, generally at low densities (between 1 dwelling unit per acre and 1 dwelling unit per 40 acres), and typically served by on-site sewage disposal systems; Single Family Residential - Sewered: Single-family residential development typically served by a public or group sanitary sewer system at densities up to 6 dwelling units per acre; Commercial Recreation: privately-owned lands designated as recreation areas, such as for- profit campgrounds, private golf courses, fish farms, and waterfront businesses; General Business: indoor commercial, office, telecommunication facilities, and occasional outdoor display land uses, generally with moderate landscaping and signage; Landfill/Extraction: sites in active use as a landfill, along with quarries, gravel pits, clay extraction, peat extraction and related land uses; Industrial: Indoor industrial land uses and occasionally outdoor storage areas, generally with moderate landscaping and signage;

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Institutional: large-scale public buildings, hospitals, airports/landing strips, non-profit campgrounds, and special-care facilities. Small institutional uses may also be shown in this category or may also be found in areas designated in other land use categories.

2. Existing Land Use Pattern Expanses of wetlands, agricultural land, open space, and pockets of forest, punctuated by rural development near the lakes along STH 22, comprise Montello’s rural landscape. Wetlands are concentrated in the eastern part of the Town, with large expanses surrounding the Fox River and its tributaries. Forest land is scattered throughout the Town, with many parcels in the west. Agricultural and rural land uses generally fill in the gaps between forested areas and wetlands; much of this was created from farm or wetland and other lowland areas a long time ago. The State-owned Grand River State Wildlife Area is classified as Public Open Space. General Business and Institutional uses are generally located along STH 22, with some located along STH 23. Three areas comprise the Commercial Recreation land uses including a resort on White Lake and the Kilby Lake Campground. The rural, “natural” landscape is punctuated with small pockets of Rural Single Family Residential development, predominantly focused around Buffalo, Montello and White Lakes, as well as pockets along STH 22, CTH F, and CTH C. There are two areas of Mixed Residential use along STH 22. Figure 11 shows the amount, type, and intensity (or percentage) of each existing land use category in the Town of Montello as of 2004.

Figure 11: Existing Land Use Totals – Town of Montello, 2004

Land Use Acres Percent Agriculture & Rural Lands 8,896 41% Wetlands 5,154 24% Public Open Space 602 3% Forest 4,595 21% Surface Water 1,200 6% Rural Single Family Residential 835 4% Commercial Recreation 304 1% General Business 115 < 1% Mixed Residential 34 < 1% Institutional 13 < 1% General Industrial 44 < 1% Single Family Residential - Sewered 2 < 1% TOTAL 21,794 100% Source: GIS Inventory, Vandewalle & Associates, 2003

3. Land Development Trends According to the Marquette County Zoning Department, between 1992 and 2002, there were 165 new parcels created in the Town of Montello though either subdivision plats or certified survey maps. This means that there were, on average, 14 new parcels created annu-

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ally. Over 50 percent of these parcels were created between 1998 and 2002. Much of this land platting activity resulted in new homes. This suggests development pressures are building in the Town.

4. Land Market Trends According to data from the Fielded Sales System compiled by the Wisconsin Department of Revenue, there were 1,500 acres of agricultural land sold in the Town of Montello from 1990 to 1997. On average, the price of land sold during this seven-year period was $473 per acre, markedly lower than the average price of land for all towns in Marquette County ($637). Of the agricultural land sold in this period, approximately 7.5 percent, or 680 acres, were converted to non-agricultural uses. This rate of conversion is higher than the County average of 5.8 percent. Sales of forested land are not available at the Town level. Countywide, there were 5,940 acres of forest land sold in Marquette County from 1998 through 2001. The Depart- ment of Revenue defines forest land as forested acres that are being managed or set aside to grow tree crops for “industrial wood” or to obtain tree products such as sap, bark or seeds. Areas primarily held for hunting, trapping, and the operation of game preserves are also classified as forest land. On average, the value of forest land sold between 1998 and 2001 was $1,546 per acre. Of the total acreage of forest land sold during this time period (819 acres), about 14 percent of this land area was converted to other uses. The above values are generally considered low when considering market values reported at the time this Plan was written. Current average market values in the Town are reported as $2,500-3,000 per acre. Figure 12 shows the equalized value of all property in Marquette County for 1980, 1990 and 2000. The highest increases in land value occurred in the residential and swamp and wasteland real estate categories. The increase in swamp and wasteland resulted in a change in real estate classification and a change in market perceptions. In 1980, swamp and wasteland was seen as having little market value. By 2000, real estate classified as swamp and wasteland had become popular, as more individuals began purchasing this land for hunting and other recreational purposes, and as adjacent land for homesites.

Figure 12: Marquette County Equalized Land Values, 1980 - 2000

Swamp & Waste & Forest Residential Commercial Manufacturing Agricultural Other Land Total 1980 $51,162,100 $3,623,200 $254,400 $78,933,900 $8,728,100 $37,924,800$180,626,500 1990 $64,229,450 $4,613,020 $329,100 $47,300,032 $8,715,330 $32,392,135$157,579,067 2000 $154,786,562 $9,073,275 $549,600 $30,318,824 $30,432,440 $55,785,770 $280,396,871 Source: East Central Wisconsin Regional Planning Commission, 2003

5. Existing and Potential Land Use Conflicts There are no existing significant land use conflicts in Montello. However, recent growth pressure in Montello is likely to continue as the Town remains an attractive location

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for residential and commercial development and a location for natural resources based recreation. The concentration of the Town’s development on the lakes has both benefits and draw- backs. The lakes provide a very attractive backdrop for development and have the potential to spur additional economic development for the Town. However, too much development along the lakes may have a negative effect on water quality of the lakes as runoff could potentially increase. In addition, public lake access opportunities can diminish. The City of Montello is rapidly becoming built out, suggesting future pressure of expansion into the Town over the 20-year planning period. Planning for the City’s expansion should be conducted in a manner that considers the interests of both communities to avoid conflict. The potential for land use conflicts may arise as the Town tries to balance a range of com- peting uses. Residents recognize the need to balance planned growth with preservation of rural character. The expansion of residential and recreational land uses may ultimately result in the fragmentation of woodlands and open spaces. More development on private lands may result in increased use of public lands, as private recreational lands decrease in supply while demand for recreation increases. In addition, the presence of State-owned natural resources in the Town can generate conflict at the interface of these public and private lands, where management directives and philosophies may not intersect seamlessly. This Plan seeks to avoid potential future land use conflicts through thoughtful and comprehensive land use planning at the local level, considering this individual planning effort in the broader intergovernmental context. Changes to zoning district boundaries to further Plan recommendations may be advisable to minimize future land use conflict.

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Map 3: Existing Land Use

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6. Projected Land Use Supply and Demand This Plan projects land use demand over the 20-year planning period (in five-year increments) for residential, commercial, industrial, and agricultural uses. Projected demand is then compared to the potential supply of land to meet that demand, as presented in Figure 13. Residential land use projections in the Town of Montello are based on year-round population, household size, and housing unit forecasts prepared by the Department of Administra- tion (DOA) and discussed in Chapter One: Issues and Opportunities. Using these forecasts, and assuming that the average future residential home site in Montello will be 10 acres, Fig- ure 13 shows the amount of year-round residential acreage needed to accommodate future growth in five-year increments based on DOA forecasts. Figure 13 does not account for seasonal home development. Actual future growth of the Town’s year-round population may be somewhat higher, based on recent home construction activity. In addition, the numbers in Figure 13 do not account for growth that may occur in the City of Montello.

Figure 13: Projected Rural Residential Land Use Demand

Totals 2000- 2005 2005-2010 2010-2015 2015-2020 2020 - 2025 2000 - 2025 Projected Number of 37 39 34 20 22 152 New Residents Projected Household 2.25 2.19 2.13 2.07 2.02 n/a Size (persons/unit) Projected Number of 16 18 16 10 11 71 New Housing Units Projected Residential Land Use Acreage 160 acres 180 acres 160 acres 100 acres 110 acres 710 acres Demand Source: Wisconsin Department of Administration; Vandewalle & Associates Future residential development shown on Map 4 and allowed under the policies of this Plan will provide more than enough capacity to accommodate this expected year-round rural residential land use demand (710 total acres) through the year 2025, even if new home demand is quite a bit higher than State projections. This is because the large supply of Rural Lands and Single Family Residential – Rural plan designations can accommodate homes at different densities. These designations also allow seasonal home development. Based on an analysis of historic growth rates, this Plan estimates that the anticipated demand for commercial and industrial land uses can be accommodated within the planned General Business areas shown on Map 4. It is the Town’s goal to remain primarily rural and residential in character. While not a requirement, the amount of new land demand for new commercial and industrial uses in the Town is expected to be less than five additional acres every five years over the next 20- year planning period. This is based on historic trends and limited utilities in the Town. According to the Wisconsin Department of Revenue’s Fielded Sales System, which tracks sales of agricultural, forest, swamp and waste parcels, approximately 680 acres of agricultural land in Montello were converted out of agricultural use from 1990 to 1997, a loss of approximately 85 acres per year. If this trend continues, the amount of agricultural land in active use will decrease by about 425 acres every five years over the 20-year planning period.

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However, the Town seeks to address these trends by exploring methods to minimize the amount of farmland conversion to the greatest extent possible.

B. LAND USE GOALS, OBJECTIVES, AND POLICIES Goal: Promote a future land use pattern consistent with Montello’s rural character. Objectives: a. Promote a desirable and compatible mix of land uses consistent with the Town’s rural character. b. Plan for a sufficient supply and mix of new development to meet Town objectives. c. Direct intensive new commercial and housing development (e.g., subdivisions) away from agricultural areas and into planned single family residential land use areas and into the City of Montello as appropriate. d. Minimize the visual impact of new development on the landscape. e. Identify areas suitable for non-residential development and long-term open space preservation. Policies: a. When making decisions on future land uses, zoning, and subdivision proposals, follow the land use recommendations mapped and described in this Plan (see Map 4). b. Single Family Residential –Sewered and Single Family Residential – Rural designations in areas near the City may be adjusted subject to discussion between the City and Town and following more detailed analysis of sewer service availability. c. Consider allowing the grouping or clustering of allowable home sites in the rural portions of Montello as an option to preserve farmland and open space, protect natural resources, and reduce development visibility. d. Try to assure that incompatible land uses are not located close to one another or require appropriate separation and screening. e. Direct commercial development proposals to areas planned for that purpose, generally along STH 22 and 23, and to the City. Discourage intensive commercial or industrial uses in land planned for residential use. f. Coordinate with the City of Montello on a mutually beneficial land use pattern in the areas of the Town surrounding and near the City. g. Guide intensive new development requiring higher levels of municipal utilities and services to the City of Montello, such as industrial development.

C. LAND USE RECOMMENDATIONS Map 4 presents recommended future land uses over the 20-year planning pe- Town Survey Results riod for the Town of Montello. The map When asked to select a statement that best ex- shows more than enough developable pressed their vision for the future, more than acreage to accommodate projected half of respondents chose: “Preserve the rural population and land use demands. Map landscape with limited new development.”

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4, along with the recommended policies and programs listed in this chapter, should be used to guide Town decision-making on future land use changes. Map 4 uses numerous planned land use designations to describe the desired type and future location of different land uses in Montello. These planned land use designations were prepared in a joint effort with other towns, villages, cities, and Marquette County and reflect the range of economic and geographic conditions in the region. The following is a description, programs and policies for each planned land use designation mapped in Montello:

1. Rural Lands Description: This is the most common designation mapped in the Town of Montello, and includes farmland, privately owned undeveloped lots, small woodlots, grasslands, forestland and open lands. Continued open space uses (including farming and forestry) are recommended for mapped Rural Lands areas, in addition to single family homes generally with a maximum density of 1 new residence per 10 gross acres. Other uses appropriate in the Rural Lands designation include: associated home occupations and small family businesses which do not interfere with the interests of nearby property owners, small-scale forest production and processing, public access recreational uses where permitted by the Forest Crop Law or Managed Forest Law programs, and the keeping of animals in numbers appropriate to the size of the lot. Policies and Programs: When considering future rezone requests, the Marquette County zoning district most compatible with the Rural Lands designation is the General Agricultural (AG-2) district, which required a minimum lot size of 10 acres at the time this Plan was written. Explore the potential for rezoning areas that are zoned Agricultural Residential (AG-3), and possibly areas zoned Resources Protection (RP), to better implement the density recommendations of the Rural Lands planned land use district. This should be done only after adoption of this Plan and further discussions with landowners.

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Discourage the placement of buildings and driveways within mapped Environ- mental Corridors, and in Group I and II soils as shown in Figure 10. Encourage new development to be designed and located in a manner that does not detract from Montello’s rural character, and which may be easily served by Town and emergency services. New roads or driveways should be placed along existing contours, property lines, fencerows, lines of existing vegetation, or other natural features wherever possible. The Town may consider a driveway ordinance to ensure the proper design of driveways. Consider certain types of small-scale non-residential uses such as churches, day care centers, parks and walking trails, and the keeping of farm animals as generally appropriate within Rural Lands areas. Consider zoning to allow the clustering of homes and preservation of land for open space use within mapped Rural Lands areas. The Town should work with the County to amend its zoning districts to allow this type of flexibility. This clustering concept is shown in Figure 14.

Figure 14: Examples of Conventional and Conservation Development (Clustering)

2. Single Family Residential – Rural Description: This designation includes single family detached residential development, generally at densities between 1 dwelling unit per 30,000 square feet to 1 dwelling unit per 10 acres, and served by individual on-site waste disposal (septic) systems. In Montello, this designation is mapped over existing residential development areas surrounding Montello, Buf- falo and White Lakes, and for new residential areas planned in the area between CTH F, XX and STH 22 and in the southeastern part of the Town.

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Policies and Programs: When considering possible rezone requests in the future, the Marquette County zoning districts most compatible with the Single Family Residential – Rural designation are the Ag- ricultural Residential (AG-3) district, the Resource Protection (RP) district, and the Residential (R-1) district. The AG-3 district requires a minimum lot size of 2 acres; the RP district requires a minimum lot size of 5 acres; and the R-1 district requires a minimum lot size of 30,000 square feet. Soil suitability, natural resources (e.g., wetlands, water features), and the character of the surrounding area should be considered when deciding on the most appropriate zoning district. In general, the RP and AG-3 Districts may be most appropriate where the proposed development is close to sensitive and high- quality natural areas, or where soils conditions are not ideal for septic systems. In an effort to direct as much future housing development as possible away from rural lands and farming areas, encourage development in the planned Single Family Residential – Rural areas. For Single Family Residential – Rural areas planned along waterfront areas, all new development will need to meet Marquette County’s shoreland setback requirements and possibly floodplain ordinance restrictions, depending on location. Consider certain types of small-scale non-residential uses such as churches, day care centers, parks and walking trails as generally appropriate within Single Family Residen- tial – Rural areas. Support efforts to preserve and rehabilitate historically and architecturally significant homes in residential areas. Proposed and existing residential areas throughout the Town, in particular much of the land in some portions of the Town, particularly along the Fox and Grand River corridors, and along STH 22 in the southern portion of the Town, may be situated in soils that are less suitable for septic systems. Perc tests should be required before new development proposals are approved within these areas. In addition, the new residential development proposed between CTH F, XX and STH 22 is an area highly susceptible to groundwater contamination. Active monitoring for contamination of private wells is recommended in these areas. In addition, special consideration should be made and in installing and replacing/updating onsite septic systems. Work cooperatively with the City to determine whether the planned Single Family Resi- dential – Sewered use is most appropriate to remain in the Town, be served by City utilities and services, or some combination.

3. Single Family Residential – Sewered Description: The designation includes existing single-family detached residential development, generally on ¾ acre lots or less, and generally served by a public sanitary sewer system. Map 4 also recommends Single Family Residential – Sewered uses for existing unsewered development for planned new Single Family Residential- Sewered development areas near the current City boundaries.

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Policies and Programs: Work cooperatively with the City to determine whether the planned Single Family Residential – Sewered use areas are most appropriate to remain in the Town, be served by City utilities and services, or some combination. Work with property owners and the City to provide sanitary sewer service to these properties where practical and feasible. More detailed study will be necessary to determine the precise extent of sewer service extensions in the area of the “triangle” south of the City, in the northwest portion of the City along Lake Montello, and in the Town adjacent to Kilby and Peters Lake. Detailed analysis will need to factor in the capacity of the system, cost of extension, environmental impact, and desires of landowners. Work with the County and/or the City to develop and apply a residential zoning district to accommodate smaller lots in these planned sewered residential areas. Discourage incompatible land uses (e.g., high traffic generators, noisy uses, etc) from locating within or next to existing or planned Single Family Residential – Sewered areas. Where such uses do occur in close proximity, the Town should encourage the creation of landscaped buffers. Work with the City to thoughtfully locate community facilities such as parks, side- walks, schools, churches, and libraries that provide convenient access to residential areas.

4. Mixed Residential Description: The Mixed Residential designation includes a variety of residential units, including multiple-family housing (3+ unit buildings). In Montello, this designation was mapped over an existing mobile home area along STH 22. There are no new areas planned for Mixed Residential use in this Plan. Policies and Programs: Encourage the continued maintenance of the highly visible mobile home area. Carefully consider any future plans for expansion of this mobile home area.

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5. General Business Description: General Business uses are mapped over existing commercial areas in the Town of Montello, and for planned areas of General Business uses between Fern Drive and STH 23, and along STH 22 in the northern and southern part of the Town. This designation includes indoor commercial, office, institutional, telecommunication facilities, and outdoor display land uses, with new development adhering to high-quality building design, generous landscaping, modest lighting, and limited and attractive signage. Policies and Programs: Work cooperatively with the City to determine whether the planned General Business use area on STH 22, between STH 23 and Fern Drive and along CTH XX is most appropriate to remain in the Town, be served by City utilities and services, or some combination. City utilities and services would allow for businesses that are more intensively developed and generally of higher assessed value. When considering future rezone requests, the Marquette County zoning district most compatible with the General Business designation is the Commercial (CM) zoning district, which allows a range of commercial uses. All new commercial development should be accessed by Town, City, or County roads. All proposed commercial development projects that require significant levels of public services and utilities should be directed to planned commercial areas in or adjacent to City limits. Consider requiring that all proposed commercial projects submit a detailed site plan showing the proposed location of the building, parking, outdoor storage, loading, signage, landscaping and lighting prior to development approval. Chapter Seven: Economic Development includes suggested standards for site plan review.

6. General Industrial Description: This designation includes indoor manufacturing, warehousing, distribution, and office uses, some with outdoor storage areas. New development should adhere to high-quality building design, generous landscaping, modest lighting, screened storage areas, and limited and attractive signage. In Montello, this designation is mapped over the existing industrial use on the northern part of STH 22, and on the southern boundary of the City. Policies and Programs: Ensure that future industrial development is appropriately buffered from residential development through screening and vegetative buffering. All new industrial development should be accessed by Town, City, or County roads.

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Although General Industrial designation could be compatible with the County’s Commer- cial CM District with the issuance of a Special Exception, the Town may wish to work with the County to develop a zoning district that better accommodates General Industrial uses as prescribed by this Plan.

7. Commercial Recreation Description: This designation includes privately-owned lands designated as recreational areas or businesses, such as for-profit campgrounds, private golf courses, fish hatcheries, and waterfront businesses. In Montello, existing for- profit campgrounds are shown on the east side of Lake Montello, north of STH 23 west of Montello Lake, and east of STH 22 off Fox Lane. There are no new Commercial Recreation areas proposed in this Plan. Any future Com- mercial Recreation development proposals may require a change to this Plan.

8. Institutional Description: In the Town of Montello, this designation includes non-profit campgrounds, schools, State highway rest areas. Small institutional uses, such as town hall buildings, cemeteries and churches, may be located in other planned land use designations. Should additional Institutional uses be necessary, the Town should thoughtfully locate them (and promote their location) in areas accessible to residents. The Town should ensure that all land use decisions related to the Institutional designation are in coordination with the Utility and Community Facility recommendations of this Plan.

9. Public Open Space Description: This designation includes portions of the Grand River Marsh State Wildlife Area, and several existing public parks and open spaces in the City of Montello. The Town should cooperate and maintain communication with the WisDNR regarding the long term management of the State-owned Public Open Space areas.

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10. Environmental Corridor Description: This overlay designation includes generally continuous open space systems based on lands including sensitive natural resources and severe limitations for development. This designation includes the following three component parts: Wisconsin DNR-identified wetlands subject to existing State-mandated County zoning, FEMA designated floodplains subject to existing State-mandated County zoning, and slopes of 20 percent or greater, which if disturbed can result in erosion and unstable building sites. Policies and Programs: New development should be avoided within mapped Environmental Corridors whenever more suitable areas for development are available on the same parcel. Existing buildings, structures, cropping, and grazing are allowed to continue. This is an overlay planning designation, which means that both the guidelines associated with the Environmental Corridors designation and the underlying designation on the planned land use map (e.g., Rural Lands) should guide Town land use decisions, with the understanding that additional restrictions may be placed on the desired use or development if the parcel is located within an environmental corridor. If development is proposed on parcels where this designation is mapped, the property owner or developer should be responsible for determining the exact boundaries of the environmental corridor based on the wetland, floodplain, or steep slope feature that defines the corridor.

11. Well Setback Area from Landfill (Boundary) Description: This boundary depicts the 1,200 foot setback area around closed landfills where the installation of a private drinking well is generally prohibited under WisDNR rules, unless a waiver is granted. The Town should not plan for any new intensive residential development on private wells within this ¼ mile setback area.

12. Shoreland Setback Area (Boundary) Description: This boundary depicts the 75-foot setback area from the ordinary high water mark from a navigable body of water where all new structures, except piers and boat hoists, are prohibited under Marquette County shoreland zoning rules. All development within this Shoreland Setback Area should meet the requirements of the Marquette County shoreland zoning ordinance, and with the broader shoreland zone that extends inland from the water’s high-water mark a distance of 300 feet from rivers and streams and 1,000 feet from lakes.

13. Potential Recreation Expansion Area (Boundary) Description: Areas within this boundary have been identified by WisDNR as foreseeable expansions (project boundaries) of State-owned parks, fishery areas, wildlife areas, or similar resource areas. It is WisDNR policy to purchase lands within the expansion area only from willing landowners. In Montello, this boundary is shown for identified expansion areas to the Grand River Marsh State Wildlife Area. Until and unless individual properties in the delineated Expansion Area are acquired, these lands are generally recommended for uses described in the Rural Lands designation.

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14. Opportunities for Redevelopment This Plan does not identify any specific areas in the Town of Montello in need of redevelopment because most of the Town is undeveloped. This Plan does suggest that the Town cooperate with the City on redevelopment efforts within the City limits.

15. Smart Growth Areas Wisconsin’s comprehensive planning law requires comprehensive plans to identify “Smart Growth Areas,” which are defined as “areas that will enable the development and redevelopment of lands with existing infrastructure and municipal, State, and utility services, where practical, or that will encourage efficient development patterns that are both contiguous to existing development and at densities which will have relatively low municipal, State governmental, and utility costs.” The Town is required to show these areas on their planned land use map. This Plan designates the planned development close to and bordering the City of Montello shown on Map 4 as a “Smart Growth Area.” The relationship of this proposed new development to existing and planned land uses in the City shown on Map 4. This logical and efficient configuration enables opportunities for extension of public services if deemed appropriate, expansion of streets to service the development, and in general, a compatibility between neighboring land uses. These types of areas are most reflective of State goals for “Smart Growth Areas.” The Town also encourages the redevelopment and infill of older areas in the City.

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Map 4: Planned Land Use

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CHAPTER FOUR: TRANSPORTATION

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Access is a key determinant of growth because it facilitates the flow of goods and people. This chapter includes background information, goals, objectives, policies and programs to guide various modes of transportation in the Town of Montello. Given the Town’s rural setting, the primary focus is on roads.

A. EXISTING TRANSPORTATION NETWORK

1. Roadways Several State and County highways radi- Roadway Function ate outward from the Montello area. The Classification System Town is served by two main State highways. State Trunk Highway (STH) 23 Throughout Wisconsin, all local, County, State is an east-west arterial in the northern and federal transportation routes are classified in part of the Town. It bisects the City of categories under the “Roadway Functional Clas- Montello, connecting it and the Town to sification” system. the other communities in Marquette As identified by WisDOT, the functional classi- County, including the Village of Oxford fication system groups roads and highways ac- and Interstate 39 to the west, and Prince- cording to the character of service they offer, ton to the east. Between 1998 and 2002, ranging from rapid through access to local land traffic counts on STH 23 west of the City access. The purpose of functional classification of Montello increased about 13 percent is to enhance overall travel efficiency and ac- (6,000 vehicles daily in 2002). commodate traffic patterns and land uses by de- STH 22 is the major north-south signing streets to the standards suggested by route, through the central part of the their functional class. The three main functional Town, connecting it with Wautoma to classes include: the north and Portage to the south. Traf- Arterial roads that provide primary access to fic on 22 increased dramatically between and through an area, 1998 and 2002, up to 48 percent (to 3,700 vehicles/day) in the north part of Collectors that disperse traffic within an area, the Town and 24 percent (to 2,600 vehi- and cles/day) in the south. Local streets that provide access to individual County Trunk Highways (CTH) B, properties. Y, C, F and K also connect the Town with surrounding communities. CTHs C and B run on the isthmus between Mon- tello and Buffalo Lakes. Between 1998 and 2002, traffic counts on C increased over 7 percent (to 870 vehicles/day). CTH K enters the Town from the west, running south along Buffalo Lake into the City. Traffic volumes increased on K by 28 percent between 1998 and 2002 (up to 830 vehicles/day). CTH F runs northeast from 14th Road, and intersects with STH 22 at the City limits. Traffic

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volumes on CTH F increased over 30 percent (to 1,700 vehicles/day) between 1998 and 2002. CTH Y runs north out of the City, serving the area on the east side of Montello Lake. Interstate 39 (USH 51) is located 8 miles to the west, accessible via STH 23. This primary traffic artery is vital to the area’s economy. Town roads are an important component of the local transportation system. Town roads serve local development, farming and forest areas. Town roads in Montello include Fern Avenue running in the east-west direction, and 14th, 15th, and 18th Roads in a north-south direction. Several smaller local roads provide access to the Town’s lakes. The presence of large expanses of wetlands and floodplains, the location of the rivers, and the relative lack of roads limit cross-town access opportunities.

2. Airports There are no major airports located in the Town or Marquette County. The nearest larger airport is the Portage Municipal Airport in Columbia County, which is classified as a “general utility” airport serving small general aviation single and twin-engine aircrafts. There are also “basic utility” airports used for recreational flying, training, and crop dusting near Wau- toma and Friendship. Larger air carrier and passenger facilities are located 1 ½ hours drive to the south at the Dane County Regional Airport, and to the east at the Wittman Re- gional Airport in Oshkosh and Outagamie County airport in Appleton. There is a small landing strip in the Town, located in the northwestern corner.

3. Rail The Union Pacific Railroad runs freight through the southern part of Marquette County beginning in the Town of Buffalo and runs through the towns of Montello and Oxford.

4. Water and Truck Transportation There is no waterborne freight movement in the County or region. Semi-truck shipments are most prevalent along Interstate 39, but also occur along STH 22 and 23.

5. Bicycle and Pedestrian Routes The County’s scenic rural roads provide opportunities for bicycling and bike touring. In recognition of this opportunity, a group made up of the Citizens Recreation Committee, County Highway Department, and Marquette County Board identified and mapped on-road bike route tours in 1999. There are ten designated routes consisting of about 140 miles in Marquette County (see Map 5). Two of these are routed through Montello. The Buffalo Lake Route begins in downtown Montello and loops 16 miles around the eastern portion of Buffalo Lake. The 19 mile Germania Jaunt starts at the Montello City Park, running north to the Germania Marsh Wildlife Area in the nearby Towns of Crystal Lake and Shields. The 14 mile Lake Puckaway Loop begins in the neighboring Town of Mecan, looping into Montello around White Lake and paralleling 18th Road south. There are no off-road recreational trails for bi- cyclists and hikers in the Town or County at the present time. Town residents participating in this planning process have suggested that adding and improving shoulders on rural roads for biking and walking would be a benefit to bikers and pedestrians.

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6. Ice Age Trail Tracing Wisconsin’s rich glacial history, the Ice Age Trail passes through Marquette County as it loops through the State some 1,000 miles from Door County to Interstate Park on the St. Croix River. Using a combination of public land, easements across property, and abandoned rail corridors, the trail will be an exceptional resource for recreationalists wishing to hike its entire length or merely a small portion of it. A newly-formed chapter of the Ice Age Trail in Marquette County was established to assist in the planning and development of this trail. A portion of the Ice Age Trail is proposed in the Town. The conceptual route generally parallels CTH D as it enters the Town, following CTH D to its intersection with 14th Road (see Map 5). The route generally follows 14th Road south into the Town of Buffalo. A 10- mile segment of the trail has been designated between Portage and John Muir County Park, considered to be one of the highlights of the trail. The remainder of the trail, which awaits designation, would extend north to Harrisville, Westfield and north along the Springfield- Newton town line into Waushara County and south into the Town of Buffalo. Land and easements for the Trail will be acquired only from willing sellers.

7. Snowmobile Routes Designated snowmobile trails are located throughout the Town. Several club and State Trails radiate out from the Town of Montello, paralleling the State and County highways.

8. Public and Para-transit Para-transit is a specialized transit service to people who require more accessible vehicles and flexible routing. The Marquette County Commission on Aging administers a para-transit program with limited services for local and longer distance trips. The County has 8-9 vehicles used for this service. The largest proportion of the population served is the frail elderly who are either living in their own homes, in nursing homes or some type of community based residential facility. In 2004, the County had four vehicles of varying sizes to serve this transportation need. The program is able to meet the current needs of County residents, but will be strained over the next 20 years if new vehicles and staffing levels are not increased beyond current levels, as the County’s elderly population grows. Public transit has been identified as a need among Town residents, not only to provide alternative transportation service within the greater Montello area, but also to assist individuals in need of transportation to regional facilities – such as hospitals and other health care options. A van or taxi service operating between the Montello area and Madison, Portage and other nearby communities would provide options to residents without other transportation alternatives.

9. Review of State and Regional Transportation Plans The following State, regional and County transportation plans and studies are relevant to the Town. There are no known conflicts between the policies and recommendations set forth in this Plan, and those of these other State, regional, and County plans, although the Town may want a priority placed on dealing with future traffic congestion on STHs 22 and 23.

10. Marquette County Transportation Improvement Program Transportation improvements to the County’s highways include road resurfacing and other relatively minor activities. The Marquette County Transportation Improvement Program

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2002 – 2006 includes resurfacing portions of the roadways surrounding White Lake including Lakeview Lane, White Lake Court, 18th Lane, Fawn Court (gravel road in 2004), and 19th Avenue. Other roadways slated for resurfacing include portions of 16th Road, Oakwood Drive, and 11th Road.

East Central Wisconsin Regional Planning Commission Highway Access Control Plan This plan, prepared in 1991, documents the need for highway access control in the unincorporated areas of Marquette County, analyzes options for regulation, and recommends an access management plan to maintain the safety and protect the carrying capacity of the County’s highway network. The major recommendations are establishment of an access permit system for the County and town roads and inclusion of driveway spacing and design standards in the County’s ordinances.

Wisconsin State Highway Plan and Corridors 2020 Plan The Wisconsin State Highway Plan focuses on the 11,800 miles of State Trunk Highway routes in Wisconsin. The plan does not identify specific projects, but broad strategies and policies to improve the state highway system over the next 20 years. The plan identifies In- terstate 39 (USH 51) as a major “Corridors 2020 Backbone” to the State highway network. The Corridors 2020 Plan identifies portions of the regional highway system that are expected to be either severely congested if no capacity expansion projects are completed over the next 20 years. These portions include STH 23 near Montello.

Wisconsin State Highway Improvement Program WisDOT also prepares 6-Year Highway Improvement Programs for each County in the State. The 2003-2009 Plan for Marquette County identifies projects for the County, although none of these are located in the Town of Montello.

Translinks 21: A Multimodal Transportation Plan for Wisconsin’s 21st Century This WisDOT plan provides a broad planning “umbrella,” including an overall vision and goals for transportation systems for the next 25 years. This 1995 plan recommends complete construction of the Corridors 2020 “backbone” network by 2005, the creation of a new grant program to help local governments prepare transportation corridor management plans to deal effectively with growth, the provision of State funding to assist small communities in providing transportation services to elderly and disabled persons, and the development of a detailed assessment of local road investment needs. Interstate 39/USH 51 was identified as a key “backbone” route. WisDOT is in the process of updating this 1995 plan in Connection 2030, set for completion in Spring 2006.

Wisconsin Bicycle Transportation Plan 2020 Wisconsin Bicycle Transportation Plan 2020 presents a blueprint for improving conditions for bicycling, clarifies the WisDOT’s role in bicycle transportation, and establishes policies for further integrating bicycling into the transportation system. The plan map shows existing State trails and future “priority corridors and key linkages” for bicycling along the State Trunk Highway system in Wisconsin. STH 22 from Montello to Wautoma was listed as a key linkage.

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Wisconsin Pedestrian Plan 2020 Wisconsin Pedestrian Policy Plan 2020 outlines measures to increase walking and to promote pedestrian comfort and safety. The plan provides a policy framework addressing pedestrian issues and clarifies WisDOT’s role in meeting pedestrian needs. There are no recommendations related to the Town.

Wisconsin State Airport System Plan 2020 Wisconsin State Airport System Plan 2020 includes an inventory of existing airport facilities and provides a framework for the preservation and enhancement of a system of public-use airports to meet the current and future aviation needs of the State. There are no recommendations related to the Town.

Wisconsin Rail Issues and Opportunities Report (2004) Wisconsin Rail Issues and Opportunities Report summarizes critical rail transportation issues identified during a public outreach effort The report serves as a point of departure for the rail component of the upcoming Connections 2030, WisDOT’s next multimodal transportation plan set for completion in 2006. There are no critical rail transportation issues related to Marquette County identified in this report.

B. TRANSPORTATION GOALS, OBJECTIVES, POLICIES, AND PROGRAMS

Goal: Provide and encourage a safe and efficient transportation system.

Objectives: a. Provide for adequate road capacities and safe conditions along with the County and State. b. Promote coordination of transportation investments with land use planning and development. c. Preserve the scenic value along roadways to protect the Town’s rural character. d. Support biking, walking, freight rail service, senior citizen and special needs transit, and other alternative modes of transportation to assist residents with travel within the Montello area and throughout the greater region.

Policies and Programs: a. Work with the County and State to maintain and, as necessary, upgrade Town roads, County Highways and State Highways. Marquette County maintains a five-year plan for road improvements. The County also maintains town roads and has historically included maintenance of such roads in its five-year plan. The Town should continue to work with the County Highway Department to incorporate desired Town road projects into this five-year County-wide plan. The Town could also assist the County Highway Department in maintaining a database on the physical condition of roads and bridges. It has been recommended in the County’s Plan that the County Highway Department update its five-year improvement plan annually. If this recommendation is followed, then ideally the Town would provide road condition ratings and maintenance and improvement desires to the County on an annual basis as well.

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b. Work with the County and State to ensure safety on the roadways by: Exploring signage and speed zones to encourage motorists to reduce their speeds, particularly where there are a number of adjacent driveways or curves in the road. An area where speed controls may be necessary is surrounding White Lake, including White Lake Court and White Drive. In addition, the segment along CTH F from the edge of the Town to XX also has speeding problems identified by the Town. A 25 mph speed limit should be considered for that area. Along CTH F, a 45 mph speed limit is desired. Limiting the number of private access driveways to main State and County highways. Many access points tend to increase places where accidents are more likely. Exploring the possibility for a passing lane along STH 22 near the Flea Market. Discouraging the use of Town roads for through and truck traffic by designating weight limits where appropriate. Ensuring maintenance of roads to meet acceptable standards for safe cycling, particularly along designated bicycle routes, and for pedestrians. c. Work with the State, County, and City to consider and implement strategies to minimize future congestion along major thoroughfares, particularly STHs 22 and 23. Potential strategies include improving intersections to promote smoother traffic flows, such as adding turning or passing lanes where appropriate. Studies have also shown that roads with more direct access driveways tend to be more congested than similar roads without many driveways, so access control is also important. Finally, the Town may work with the State to identify where adding travel lanes may be feasible. However, the limits associated with existing bridges, developments, environmentally sensitive areas, and budgets may make adding lanes to significant segments of STHs 22 and 23 impractical. d. Consider working with the County to promote an interconnected system of roads in planned Single Family Residential-Rural areas and to update design and layout standards for new town roads where platted. The Marquette County Comprehensive Plan recommends developing unified road improvement standards in conjunction with the towns. The resulting product would be a Town Road Specifications Manual, which would be in effect for newly platted roads in towns that endorsed or accepted it. The recommended Town Road Specifications Manual could help ensure that roads are built to function properly, to facilitate maintenance and emergency service provision, and to last as long as possible. The manual may also address issues such as road right-of-way width, base course and pavement width and thickness, roadside and internal drainage, intersection design, maximum slopes and curves, logical addressing, and/or non-duplicative road naming. e. Consider adopting a Town driveway/private road ordinance to ensure suitable dimen- sions and design for emergency vehicles, guide driveway placement, promote access control to adjacent roads, and protect rural character. Or, the Town should work with the County to prepare a model, which by agreement would also be administered by the County. Such an ordinance could be available at the County level for Towns to adopt, and with the option for the Town to contract with the County to administer. A driveway ordinance could: Include width, design, clearance, address signage, and slope standards to ensure access by emergency vehicles. To effectively provide safe access for emergency equipment, driveways should provide at least 12 feet of unobstructed width and at least 14 feet of unob-

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structed height. Driveways lined with dense vegetation and longer driveways should provide for a turn-out to accommodate two-way traffic and a turnaround near the home. Specify the number of driveway accesses to the road allowed for each property. Encourage shared driveways between adjacent developments. The Town should require, however that when shared driveways are proposed, a maintenance agreement is reached. Require “no vehicular access” areas on subdivision plats or certified survey maps where driveways connecting to the public road would not be safe. Guide the placement of driveways relative to each other and road intersections, and to protect sight distances for vehicles leaving the property. Require that all private roads have a minimum 66 foot right-of-way to allow some future road access, if any. This type of ordinance typically requires, before a driveway may be constructed, submittal of a plan that shows the location, slope, cross-section, retaining walls or bridges or culverts (if necessary), erosion control and drainage management approaches. Model town driveway ordinances are available from the Wisconsin Towns Association. f. Help protect the rural character along scenic roadways. This may include: Standards for signs, billboards, and telecommunications towers along major roadways. Ordinance enforcement to discourage the accumulation of junk on properties. The County zoning ordinance defines “junkyards” and limits them to certain zoning districts. Working with the County and neighboring communities to designate and market scenic driving loops that showcase unique natural and cultural resources. These may correspond with bike routes. Where housing is planned, promoting the placement of new houses in locations that minimize visibility from the road and preserve vegetation and topographic features. g. Coordinate with the County and State to improve marking of bicycle routes. In addition, this Plan recommends paving the shoulders (4 feet) on all State and County highways on a designated bike route. Town roads have low enough traffic volumes where paved shoulders are generally not necessary. h. Coordinate with other units of government on other forms of transportation, such as rail, air, trucks, and water.

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i. Coordinate with the County, neighboring communities, WisDOT and non-profit groups to encourage and support alternative modes of transportation/public transit, including the continuation of freight rail service, inter-city buses from Montello to places like Portage and Madison, the provision of transit to out-of-town medical facilities, and completion of the Ice Age Trail. j. Monitor and participate in pending statewide long-range plans (Connections 2030) for highways, local roads, air, water, rail, bicycle, pedestrian, and transit systems.

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Map 5: Transportation and Community Facilities

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CHAPTER FIVE: UTILITIES AND COMMUNITY FACILITIES

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This chapter contains a compilation of background information, goals, objectives, policies and recommended programs to guide future utilities and community facilities in the Town.

A. EXISTING UTILITIES AND COMMUNITY FACILITIES

1. Town Facilities The Montello Town Hall is located along STH 22 and CTH F in the central portion of the Town, and is shown on Map 5, Transportation and Community Facilities. There are no home refuse collection services in the Town. Some residents have identified a need for this service as well as large item disposal, but others have noted that this would be at an additional cost.

2. County Facilities Marquette County’s government offices operate out of several buildings in the City of Montello; most are located in the courthouse on West Park Street. Other County facilities, including the Highway Department facility and service center, and the County’s Job Center, are all located in the Montello area. The County Fairgrounds occupies a 40-acre site in the southwestern portion of Westfield.

3. Parks and Recreation Facilities The Grand River Marsh State Wildlife Area offers significant recreational opportunities (including hiking, fishing, canoeing, and bird-watching) to residents or visitors of Montello (discussed in Chapter Two). The Town of Montello does not own any park areas. There are several parks located in the City of Montello. Marquette County owns and maintains seven public access points on the County’s major lakes and rivers. There are access points to Buffalo, Mon- tello, and Kilby Lakes, located in the City limits. The private resort on White Lake also allows for access. Marquette County has 140 miles of designated bike routes, including three partially within the Town of Montello. In addition, Marquette County maintains about 100 miles of snowmobile trails.

4. Police, Fire, Emergency, Health Care Services and Child Care Facilities The County Sheriff’s Department serves as the law enforcement agency for Town residents. The department has 35 full-time officers. The County provides about 2.5 officers per 1,000 people (which is similar to the State ratio of 2.4, and exceeds the East Central Region

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ratio of 1.7). The department operates out of the courthouse building in the City. The County Jail is also located in this building. The Town of Montello operates a fire district jointly with the City of Montello, and Towns of Shields, Packwaukee, and Buffalo. Though residents consider the Fire De- partment excellent, the Fire Station that operates out of Montello is somewhat overcrowded and could benefit from expansion or a satellite station. The Town is served by County Emergency Medical Services. In addition, the Montello Emergency Medical Service serves portions of the City of Montello and the Towns of Shields, Mecan, Buffalo, and Packwau- kee. There are no major hospitals located in the County, with the nearest hospital located in Portage. Adequate health care is considered a concern in the Town. There are child care facilities located in the Town.

Figure 15: Fire and Ambulance District Boundaries (2004)

5. Schools Nearly all students living in the Town are served by the Montello School District. This district serves 2,450 households and had a total K-12 enrollment of 869 students in the 2002/03 school year. Total enrollment has remained steady in the district over the past five years, ranging from 820 to 870 students. Figure 16 compares the Montello School District’s enrollment to that of the other major district in the County, the Westfield School District. The district also serves students from the City of Montello, and Towns of Shields, Packwau- kee and Buffalo. The district’s only high school, middle school and elementary school are all

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located in the City. The district’s 120-acre school forest and interpretive nature trail, known as Hungary Hills, is located in the Town of Montello. A small area in the southeastern part of the Town is served by the Markesan School District. School district boundaries are shown on Map 1.

Figure 16: School District Enrollment, 1997 - 2003

97/98 98/99 99/00 00/01 01/02 02/03 Westfield School District 1,525 1,457 1,390 1,410 1,346 1,337 Montello School District 873 869 852 841 822 869 Source: Wisconsin Department of Public Instruction, 2003 Marquette County is located in the Madison Area Vocational Technical district. According to public input during the process, residents cite the need for additional facilities that provide adult education and work force development.

6. Libraries There are six libraries in Marquette County, located in the City of Montello, the villages of Endeavor, Neshkoro, Oxford and Westfield and the Town of Packwaukee. These libraries have a combined circulation of 61,058 volumes.

7. Other Community Facilities There are several active organizations in the City of Montello that serve the greater Montello community. These include the Lions and Lioness organizations, the Rotary Club, the Senior Citizen’s Center, and the City of Montello Chamber of Commerce. These organizations organize regular events including fundraisers, social events, and outings for all ages. The Chamber of Commerce also organizes the annual Father Marquette Days, a two-day celebration of the area’s heritage. The Montello Senior Center organizes holiday parties, monthly potlucks and other social events. Town residents have cited the need for greater facilities and opportunities for local youth. The above organizations could be utilized to help create generational partnerships within the community, and design programs that link the Town’s youth to its senior citizens.

8. Water Supply Town of Montello residents obtain their water supply from individual private wells. Chapter Three provides more detailed information on the quantity and quality of the groundwater supply.

9. Wastewater Treatment Facilities In the Town of Montello, the disposal of domestic and commercial wastewater is handled through the use of private on-site wastewater (sewage) disposal systems. These on-site systems, often referred to as septic systems, generally discharge the wastewater to underground drainage fields. There are six types of on-site disposal system designs typically used in rural areas: conventional (underground), mound, pressure distribution, at-grade, holding tank, and sand filter systems.

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The County regulates septic systems through authority granted by the State. Wisconsin De- partment of Commerce (COMM) establishes the code that regulates the siting, design, installation, and inspection of most private on-site sewage systems. In 2000, the State adopted a revised private sewage system code called COMM 83. This revised code allows conventional on-site systems and alternative systems, such as those that employ biological or chemical treatment. In some cases, alternative waste disposal systems can be used in areas where conventional systems are not feasible due to unsuitable soil conditions.

10. Telecommunications Three telephone companies serve Montello: Verizon North and Century Tel. There is a growing trend in cellular telephone use and, with this demand, comes local issues regarding electronic interference, aesthetics, and community impacts associated with towers. In 2004, there were several cell towers located in Marquette County, most are sited along highways.

11. Electric Generation and Power Distribution Systems Montello receives electrical services from the Alliant-Wisconsin and Adams-Columbia Elec- tric Cooperative. There are no major transmission lines running through the Montello area. There are three hydropower electrical generating facilities in Marquette County, one in the City of Montello, one in the Town of Harris, and one in the Village of Neshkoro.

12. Recycling Facilities The County adopted its Recycling Plan in 1991 to establish a framework for an effective recycling program to serve the entire County. The City-operated recycling center is located on the north side of the City. The Town has an agreement with the City to utilize this facility.

13. Cemeteries There are four cemeteries in the Town of Montello. These are located along 22 north of the City, north of CTH B at 11th Road, at STH 23 and Fern Drive, and east of STH 22 in the southern portion of the Town.

B. UTILITIES AND COMMUNITY FACILITIES GOALS, OBJECTIVES, POLICIES, AND PROGRAMS

Goal: Supply public facilities and services in line with resident expectations and the Town’s rural atmosphere.

Objectives: a. Coordinate facilities planning with land use, transportation, and natural resource planning. b. Provide community services and facilities consistent with a low tax levy and rural living. c. Protect the Town’s public health and natural environment through proper collection and treatment of solid and sanitary waste. d. Cooperate with others to ensure that a range of services are available to residents of the greater Montello community; for instance senior housing, child care, and health care. e. Enhance resident access to advanced telecommunication technologies through considering the location of cellular phone towers and broadband/fiber optics.

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Policies and Programs: a. Work with the County and neighboring communities on new or extended joint service agreements to consolidate and coordinate services, achieve better services, and/or achieve cost savings. These types of agreements are particularly important in the current era of diminishing government financial resources. In addition to maintaining current agreements related to fire, EMS, and road maintenance, an intergovernmental service agreement with the City could be considered to provide home collection of refuse and recyclables in the Town. b. Work with the City and other communities in the Montello Fire District on long-range space options for the Fire Department. c. Guide new urban development into areas with public sanitary sewer and water systems in or close to the City. This includes commercial and industrial uses planned along the south and east sides of the City. This approach will maximize the considerable investment that has already been made into these public utilities and result in more compact, higher value commercial and industrial uses. d. Work with the County to properly site and monitor private on-site wastewater treatment (septic) systems to assure public health and groundwater quality. Marquette County recently updated its sanitary code to respond to COMM 83. In the future, Marquette County may consider additional updates. The Town should remain informed should these changes occur. The Town could also work with the County to promote the State’s grant program, called the Wisconsin Fund, to help repair or replace failing septic systems. e. Explore long-range sanitary waste collection, treatment, and disposal options for intensively-developed lake areas. In particular, thinking about how to best serve homes surrounding White Lake will become important as the shift to year-round residences continues. In addition to just continuing with on-site septic systems, the Town, Lake Association, and/or City could explore three alternative approaches to promote coordinated long-range waste treatment in the White Lake subdivision area, or in similar areas around other lakes in the Town. Possible approaches include: Extension of City sanitary sewer lines. One option may be to work with the City on an intergovernmental agreement to extend City sewer lines. This has the advantage of using an existing public sewer system, treatment plant, and administrative structure. The major disadvantage appears to be the distance that White Lake is from the City (2+ miles), and the significant costs of extending a sewer line over that distance, particularly if the topography does not allow for a gravity flow system. Assigning the responsibility of who pays for the sewer line is also a concern. Creation of new sanitary or utility districts. Where there is intensive development some distance from a public sanitary sewer system, forming a new sanitary or utility district is a second option. State law grants towns the authority to create such districts, although there are certainly State policy issues to overcome (e.g., discouraging new treatment plants). The process for creating these types of districts includes a town reviewing a signed petition by persons owning land within the proposed limits of the district, holding a public hearing on the petition and, if approved by the town, filing the district with WisDNR. Once established, the district commission may project, plan, construct and maintain a sanitary sewer system. The sanitary or utility district option would ensure local control of a waste treatment system, but would create an additional administrative bur-

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den. Some type of disposal system, such as a treatment plant, would also have to be built and maintained. The White Lake Sanitary Sewer District is a good model of this approach, and could be extended to some of the areas around Montello and/or Buffalo Lakes. Establish a group or community waste collection and treatment system. Another option to serve development areas remote from public sewer services is a group or community waste treatment system. This is essentially a large private septic system that provides wastewater treatment to a group of homes, rather than just one. Sewer lines connect the homes to the system. There are a variety of collection and treatment technologies available for group systems. Group systems can provide a lasting solution and better environmental protection in areas with small lots, where individual septic system siting is difficult. Proper assurances for joint, ongoing maintenance of such facilities is critical. Instead of public ownership, these systems may be owned and maintained by a homeowners or lake association. Enough land area would be needed for placement of a group system. f. Help assure a high-quality and abundant supply of groundwater for drinking water by: Exploring long-range coordinated waste treatment options for lake areas. Minimizing intensive new development in rural areas. There is a low probability of groundwater pollution associated with on-site wastewater treatment systems where overall housing densities in an area are less than one house per two acres. Minimizing impervious surfaces (e.g., rooftops, paved areas) and promote water infiltra- tion (e.g., stormwater basins) in groundwater recharge areas. Directing rural residential development away from closed landfills (1,200 foot radius), except in cases where WisDNR has designated these areas as appropriate due to site- specific hydrologic conditions (such as in the area near Fern Avenue that was developed in 2004/2005). Supporting an effective inspection and required maintenance program for all private on- site waste treatment systems. Limiting the use of salt on roads, and locate and manage snow and salt storage areas to avoid groundwater and stream pollution. g. Support strategies for enhancing telecommunication capabilities. There were fiber optic lines that can support high speed data transmission in the villages of Endeavor, Oxford, Westfield, and the City of Montello at the time this Plan was written. This Plan supports enhancing telecommunication capabilities in the Town, through strategies such as: Laying fiber optic cables when roadway improvements are conducted, or when transmission lines are laid. Working with local utility providers—who already maintain easements and right-of-ways, telecommunications infrastructure, and an existing customer base—to provide services. Larger potential customers in rural areas could potentially provide enough economic in- centive to bring service to rural areas where demand may not otherwise justify the ex- pense.

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Supporting a County-wide study to explore feasibility of various broadband services. This involves determining the scope of work to install such infrastructure, the projected return on investment, and the projected timeline. Exploring funding for this type of community utility investment through the U.S. De- partment of Agriculture’s Rural Utility Services or other exploratory or pilot programs. h. Encourage construction site erosion control and ongoing stormwater management for subdivisions and other larger projects. Stormwater management techniques include natural drainage swales and retention and detention basins. See Chapter Two for more information. i. Explore providing or contracting for refuse collection services in the Town. This may include exploring garbage pick-up, disposal opportunities for large items, and a regularly scheduled (e.g. twice annually) Clean Sweep program for hazardous household wastes. j. Support private community service organizations in the Montello area to provide a wider variety of activities for youths. k. Continue to cooperate with and rely on the broader region to ensure that Town residents have all the necessary services, including health and child care, police, fire and rescue, libraries, cemeteries, and other government facilities. l. Stay informed with any plans by the American Transmission Company (ATC) related to the location of power lines and/or a substation in the Town. Because new transmission lines are costly to build and difficult to site, energy providers are increasingly looking to increase capacity along existing routes. This Plan promotes “corridor sharing” or the use of the transmission line’s existing rights-of-way for other facilities. Corridor sharing reduces the impacts by locating linear land uses together, and minimizes the amount of land affected by new easements. It also reduces the proliferation of corridors and easements such roads, pipelines, power lines, and other linear features. m. Generally follow the timetable shown in Figure 17 to create, expand or rehabilitate community facilities.

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Figure 17: Timetable to Improve or Enhance Utilities and Facilities

Timeframe for Utility or Facility Improvements Comments Water Supply N/A All water in Town supplied by private wells; expected to continue. On-Site Wastewater Ongoing Promote the State’s Wisconsin Fund to help repair Treatment Technology or replace failing septic systems; consider community/group waste treatment systems in areas of intensive development; participate in County code updates. Sanitary Waste Disposal 2005-2010 Explore extension of City sewer lines to planned commercial/industrial areas near the City’s edges; consider extension of lines to lake development areas, creation of new sanitary/utility district, or activation of existing districts. Stormwater Management N/A County administers the Erosion Control and Stormwater Runoff ordinance for new subdivisions. Solid Waste Collection and 2005 – 2010 Explore garbage pick-up services and additional Disposal options for disposal of large items. All landfills in the Town are closed; no new local landfills expected. Law Enforcement Services N/A County provides services and may explore long- range space needs for Sheriff’s Department. Fire Protection and EMS 2005 – 2010 Explore with other communities in the Montello Services Fire District the potential need for additional space for the Fire Department; occasional equipment upgrades will also be needed. 2005-2010 Work with the County to consider and implement options to increase full time EMT staff and pay compensations to volunteer EMTs Medical Facilities N/A Medical facilities in nearby communities appear to meet needs. Library N/A City library meets current and forecasted needs. Schools 2005 – 2025 Keep informed on school district decision making. Park & Recreation 2005 Participate in the countywide update to the 1999 Facilities Outdoor Recreation Plan. Telecommunication 2005-2010 Work with the City and County to explore funding Facilities sources, feasibility, and demand for fiber optic/broadband access expansion. Cemeteries N/A No present need to identify future sites or expansions.

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CHAPTER SIX: HOUSING & NEIGHBORHOOD DEVELOPMENT

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This chapter contains background information, goals, objectives, policies and recommended programs aimed at providing an adequate housing supply that meets existing and forecasted housing demand in the Town.

A. EXISTING HOUSING FRAMEWORK

1. Housing Age and Structural Characteristics There were 682 housing units in the Town of Montello per the 2000 Census. As shown in Figure 18, the Town’s housing stock is predominately single-family homes (78 percent), but to a lesser extent than some neighboring towns. The number of mobile homes decreased slightly, attributed to a County Zoning rule that limits the length of time a recreational vehicle is allowed to sit on vacant land or serve as a primary residence. In addition, those regulations set a minimum dwelling size and require a special exception for the placement of a mobile home. According to the State Demographic Services Center, Annual Housing Unit Survey, there were 117 new housing units constructed in the Town between 1990 and 2003. Consistent with County trends, the majority of new homes constructed were single family dwellings.

Figure 18: Housing Types: 1990- 2000

2000 Units per Structure 1990 Units 1990 Percent 2000 Units Percent Single Family 467 73.4 534 78.3 Two Family (Duplex) 3 0.4 1 0.1 Multi-Family 9 1.4 13 1.9 Mobile Home, trailer, or other 157 24.6 134 19.7 TOTAL* 636 100% 682 100% Source: U.S. Census of Population and Housing, 1990 and 2000 *Percents may not add up to 100 due to rounding.

Figure 19 compares other 2000 housing stock characteristics for the Town of Montello with Marquette County and the State. The figure shows the number of housing units and occupancy rate in the Town, County, and State. Over 30 percent of the Town’s housing stock is classified as “seasonal” by the U.S. Census. Housing defined as "seasonal, recreational or for occasional use" describes a housing unit which intended for use only in certain sea- sons or for weekend or other occasional use throughout the year. Seasonal units include those that are occupied temporarily by persons with usual residences elsewhere. The proportion of the Town’s housing devoted to seasonal uses is considerably larger than that of the City (6 percent), County and the State. It appears that there has been significant recent conversion of seasonal to year-round housing in the Town of Montello. The median value of owner-occupied housing in the Town has increased dramatically over the last decade- nearly doubling from $65,800 in 1990 to $105,100 in 2000.

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Figure 19: Comparison of Housing Stock Characteristics - 2000

Town of Marquette Montello County Wisconsin Total Housing Units 682 8,664 2,321,144 Occupancy Rate 63.4% 69% 89%

% Vacant (Homeowner) 3.4% 2.1% 1.2%

% Seasonal 32.3% 26% 6% % Owner Occupied 84.2% 82% 68% Median Housing Value/Owner Occupied $105,100 $87,000 $112,200 Source: U.S. Census of Population and Housing, 2000

2. Housing Age and Structural Characteristics The overall condition of housing can be generally assessed through census data, including structural age, presence of complete plumbing facilities, and overcrowding. Figure 20 illus- trates the age of Montello’s housing stock based on 2000 Census data. The Town experienced its highest level of housing construction in the last three decades, beginning during the 1970s. Less than one-quarter of the Town’s homes were built before 1959. This pattern is quite different from that of the City, where much of the housing construction occurred earlier.

Figure 20: Age of Town of Montello Housing as a Percent of the Total 2000 Housing Stock

1990 to 2000

1980 to 1989

1970 to 1979

1960 to 1969

1940 to 1959

1939 or earlier

0.0% 5.0% 10.0% 15.0% 20.0% 25.0%

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3. Special Needs Housing Special needs or subsidized housing is provided for individuals requiring housing assistance, or is housing designed to accommodate financial difficulties, disabilities, age, domestic vio- lence, or drug abuse problems. Throughout Marquette County, several governmental, private and nonprofit agencies provide some form of housing assistance to meet these types of situations. According to the Wisconsin Housing and Economic Development Authority (WHEDA), there were three federally assisted facilities in the City of Montello in 2003. There are no facilities located in the Town.

4. Housing Needs Analysis The relationship between housing costs and household incomes is an indicator of housing affordability, which is gauged by the proportion of household income spent for rent or home ownership costs. The national standard for determining whether rent or home ownership costs comprise a disproportionate share of income is set at 30 percent of gross household income. Households spending more than 30 percent of their income for housing may be at risk of losing their housing should they be confronted with unemployment, unexpected bills, or other unexpected events. In 1999, the percentage of renters in Montello without affordable housing was between 20 and 29 percent. Needs for additional rental housing in the Town or City, and improved quality of existing rental housing were expressed by Town residents during this planning process. The ECWRPC compiled ten variables (including age of occupied units, homeowner and rental vacancy rates, owner-occupied housing values, renter and owner-occupied housing affordability and housing conditions) from the 2000 census to evaluate the level of “housing stress” in each jurisdiction. The levels range from “adequate,” “minor,” “moderate,” “substantial,” to “severe”. According to this composite index, Montello was identified as having a “substantial” level of housing stress.

5. Housing Programs Several housing programs are available to Town residents: The U.S. Veterans Administration provides low-cost loans and other housing assistance to veterans in the County. Wisconsin Housing and Economic Development Authority (WHEDA) is the most active housing agency in Marquette County and constructed most of the affordable housing for low-income families and seniors. The Wisconsin Department of Administration’s Bureau of Housing administers the Community Development Block Grant program, a federal funding source for rehabilitation loans and grants. The Wisconsin Department of Administration also provides loans to low and moderate income homebuyers in the County. Rural Development is a nonprofit agency active in central Wisconsin that also provides housing assistance in the form of low-interest loans to low-income homebuyers. Religious institutions and social service agencies provide housing services to persons with disabilities, persons with HIV/AIDS and for seniors.

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CAP Services, a regional provider of business, housing and social services, has a financial assistance program for first-time homebuyers that provides matching dollars to low-and moderate-income first-time homebuyers for down payment and closing costs. CAP also provides housing rehabilitation and weatherization for owner-occupied and rental housing. Habitat for Humanity works with local low-income residents to build new homes.

B. HOUSING AND NEIGHBORHOOD DEVELOPMENT GOALS, OBJECTIVES, POLICIES, AND PROGRAMS

Goal: Encourage decent, affordable housing for all Town residents.

Objectives: a. Support a range of housing choices to meet the needs of persons of all income levels, age groups, and special needs; exploring senior housing, assisted living facilities, town houses, duplexes, and condos in addition to single family housing. b. Encourage high quality construction and maintenance standards for housing. c. Encourage home siting that will not result in property or environmental damage, or impair rural character or agricultural operations. d. Encourage neighborhood designs that protect residential areas from incompatible land uses, promote connectivity of road and environmental systems, and preserve rural character.

Policies and Programs: a. Plan for a sufficient supply of developable land for a range of different housing types, in areas consistent with Town land use goals, and of densities and types consistent with community service and utility availability. The recommended “Planned Land Use Map” for the Town of Montello (Map 4) will accommodate expected housing demand over the 20 year planning period and beyond, within a variety of residential and rural land use designations. b. Encourage efforts to maintain housing and residential areas through: Working with the County to administer existing regulations designed to keep incompatible uses (e.g. junk vehicle storage) out of residential areas, and Directing residents to sources of funding to rehabilitate housing that has deteriorated in condition. Using CDBG funds, the County or communities may establish rehabilitation loans or grants to assist owner-occupants with repairs.

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c. Continue to work with the County to ensure that the Town has control over the quality and siting of mobile/manufactured home parks and individual mobile homes. The Town may adopt a mobile home ordinance to regulate mobile home placement, similar to what other Marquette County towns have already done. Also, the Town may work with the County to encourage the continued maintenance of the highly visible mobile home area on STH 22 and carefully consider any future plans for expansion of this mobile home area. The Town may also work with the County on possible future zoning updates to address manufactured and mobile home quality and placement. d. Support the private market in developing affordable housing for people of different (low and moderate) incomes, the elderly, and people with special needs. Promotion of affordable rental housing options in the Montello is a particular emphasis. Several State and federal programs and funding sources are available to assist private developers, Marquette County, local governments, and residents meet housing objectives. Examples of these are described on the previous page. e. Support efforts to protect private homes from wildfire hazard through thoughtful home siting and grounds maintenance. County and local governments can work with private developers and homeowners to educate them on the risk of wildfires and take measures to ensure that emergency responders can safely and adequately fight fires. The Montello Fire Department and WisDNR can assist with these efforts. In addition, this Plan recommends that local fire agencies be provided the opportunity to review subdivisions or large- scale non-residential development projects. The location of individual homesites, parks, open recreational lands, roads, trees, and landscaping should also be reviewed with fire protection in mind. f. Promote quality neighborhood design and layout in new residential areas, adhering to appropriate rural standards for roads, other infrastructure, and lot placement in new subdivisions. Details are provided below. Areas planned for new housing are shown in Map 4.

C. HOUSING AND NEIGHBORHOOD DESIGN RECOMMENDATIONS This Plan endorses high-quality design and layout in all newly planned residential areas in the Town. This includes protecting “environmental corridors” during the land division and construction phase and providing safe and adequate road access. In areas where Map 4 shows new residential development (the areas designated as Single Family Residential – Rural), this Plan encourages the use of “conservation neighborhood design” techniques in the planning and developing of these subdivisions. Conservation Neighborhood Design is an overall approach to designing new residential developments in a manner that achieves many of the goals of this Plan. The following “conservation neighborhood design” guidelines described in this section are recommendations, and not man- dates:

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Preserve open space, farmland, and natural features that define, sustain, and connect neighborhoods and enhance rural character. Promote rural character by “hiding” development from main roads through natural topography, vegetation, and setbacks. This could be accomplished by arranging lots behind trees, hills and ridges. Where such features are absent, the use of berms with natural plantings can also be effective. Another method would be to discourage the development of highly-visible “frontage lots” along roadways, as these have the greatest visual and traffic impacts. It should be noted, however, that while minimizing the visual impact of development, it is also critical to maintain safe fire access and appropriate road and driveway markings to ensure fast emergency response. Arrange individual homes in desirable locations, which should consider topography, privacy, and views of open space. Use the road and possibly a trail network to connecting homes to each other, connect streets to the existing road network, and connect the development to adjoining open space and/or nearby public lands. Encourage housing on modest sized lots. Smaller lots that are “clustered” in buildable portions of a property will allow for greater protection of natural features and open space in other portions of the land. Often, rural lots can be as small as 1½ acres and still allow for safe disposal of sanitary waste. Figure 21 provides a visual comparison between a conventional subdivision and conservation neighborhood design on the same conceptual site.

Figure 21: Example of Conservation Neighborhood Development Compared to Conventional Development (In Planned “Single Family Residential – Rural” areas)

Conventional Development Conservation Neighborhood

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Strategic amendments to the County subdivision and zoning ordinances may be adopted to encourage conservation neighborhood design principles as an option. The rules may be written to provide incentives for this type of development, for example, by allowing slightly more lots than otherwise allowed if conservation design principles are not followed. Often, conservation subdivisions preserve one-half or more of the land as permanent open space. Who maintains this space is a frequent question. In conservation neighborhoods, the open space may be owned and managed by one or a combination of the following: A private individual who holds title to the land and manages it for open space uses (e.g., farming, hunting), often as provided by a conservation easement. This conservation easement could limit any future development in the open space area. This individual could be the original landowner, or a new owner interested in using the land for farming, hunting or other open space uses. A homeowner’s association or lake association made up of private property owners within the development. The homeowner’s association would own and maintain the common open space through a formal declaration of covenants, conditions and restrictions. This method provides residents with the greatest degree of control over the use and management of the open space. A non-profit conservation organization, such as a land trust, which retains or protects the natural, scenic or open space values of real property to assure the availability of this land for agricultural, forest, recreational or open space uses. A governmental agency which might provide the land as a public recreation area.

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CHAPTER SEVEN: ECONOMIC DEVELOPMENT

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This chapter contains a compilation of background information, goals, objectives, policies and recommended programs to promote a healthy, balanced economy for the Town of Montello. This chapter includes an assessment of new businesses and industries that are desired, an assessment of the Town’s strengths and weaknesses, and an inventory of environmentally contaminated sites.

A. EXISTING ECONOMIC DEVELOPMENT FRAMEWORK

1. Labor Force Trends A community’s labor force According to the 2000 Census, the Town of Montello’s is the portion of the popula- labor force consisted of about 496 individuals. This is a 13 tion age 16 and older that is percent increase since 1990. Of the Town’s 2000 labor employed or available for force, 463 persons were employed and 33 were work. The labor force in- unemployed; resulting in an unemployment rate of 6.7 cludes people who are in the percent. This is comparable to the County unemployment armed forces, employed, rate (7.3 percent) and slightly higher than the State and unemployed, or actively national rate of just under 5 percent. seeking employment.

2. Local Jobs There are no major employers within the Town of Montello given its rural nature, although there are several smaller businesses located in the Town and City that do provide local jobs. The City of Montello and nearby communities have industrial parks and downtown business districts. Within Marquette County, the number of jobs grew 9 percent from 1996 to 2001 (with a reported 3,821 jobs). The County’s job growth had been centered in the goods-producing industries, which is counter to trends happening throughout the rest of the State and nation. According to the State’s Department of Workforce Development (WisDWD), the State’s manufacturing employment was not hit as hard in the early 2000s as other parts of the country because most of its products are non-durable goods (e.g., foods and kindred products), which are less prone to fluctuation in business cycles. Job growth has also been strong in industries that serve the County’s growing population, many of whom are retired. Finance, insurance and real estate; and construction of new residential properties are the fastest growing industries in the County.

3. Income Data According to 2000 census data, the median household income in the Town of Montello was $35,347. This is very similar to that of the County, which was $35,746. Within the County, median household incomes in the 14 towns ranged from $31,000 to $43,000, and in the City and four villages from $30,000 to $39,000. Adjusted gross income per return as reported by the Wisconsin Department of Revenue for 2001 was $29,784 for the Town of Montello.

4. Commuting Patterns Approximately half of Marquette County’s workforce is employed outside the County, according to 2000 statistics compiled by Wisconsin Department of Workforce Development. Of the 3,236 workers commuting outside the County, 43 percent (1,398 workers) commute to Columbia County to the south. Dane County is the second most common workplace

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destination, drawing 13 percent of the commuting workforce (423 workers). In contrast, about 1,330 workers commute into Marquette County for employment. The average time a Marquette County resident travels to work increased from 23 minutes in 1990 to almost 26 minutes by 2000. In the Town of Montello, the average worker commuted 22.8 minutes.

5. Location of Economic Development Activity Map 3 shows the location of existing economic development activity in the Town of Mon- tello. Map 4 shows the location of planned future economic development activity. These areas are labeled under the General Business and Industrial land use categories on the maps. For the Montello area, much of the economic development activity is focused in the City.

6. Re-Use of Environmentally Contaminated Sites The Wisconsin DNR’s Environmental Remediation and Redevelopment Program maintains a list of contaminated sites, or “brownfields,” in the State. As of July 2003, there were 42 sites listed in the Town and City of Montello combined, although most of these sites are located in the City. Six of these sites are considered “brownfield” sites. The DNR defines brownfields as “abandoned or under-utilized commercial or industrial properties where expansion or redevelopment is hindered by real or perceived contamination.” Examples of brownfields might include a large abandoned industrial site or a small corner gas station with a leaking underground storage tank. Properties listed in the DNR database are self-reported, and do not necessarily represent a comprehensive listing of possible brownfields in a community. The remaining sites include leaking underground storage tanks, spills, and sites where no action is required.

7. Economic Development Programs Aside from local economic development initiatives, the following economic development programs and agencies benefit, or are available to, the Town, its residents, and Marquette County: ECWRPC Economic Development Strategy is used to distribute Community Develop- ment Block Grants (CDBG) for designated projects in each County within the region. Community Development Block Grant (CDBG) Program is available through the State to help underwrite the cost of infrastructure necessary for business development and make improvements to public facilities such as water systems, sewage systems and roads, and which will principally benefit business retention or creation. Agricultural Development Zone is a program to attract, promote, retain and encourage the expansion of agricultural businesses in Wisconsin. Community Assets for People (CAP) was established in the 1960s as a federally designated community action agency for Marquette, Portage and Waushara counties. CAP programs are designed to assist low-income residents address the causes of poverty. Examples of these programs include below market rate loans for low to moderate income entrepre- neurs wishing to start or expand a business; an income qualified first-time homebuyers program; a Head Start program to provide daycare and childcare services to low and moderate income residents. Marquette County Economic Development Corporation established a Strategic Plan in 2004 to identify short- and long-range economic development goals, including building

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strong partnerships, raising awareness about the EDAC, conducting a countywide economic development assessment, identifying funding sources, and working on programs that enhance business and job creation. Wisconsin Rural Partners is a nonprofit organization that focuses on rural community and economic development, providing a wide range of services that includes economic development workshops and education. United States Department of Agriculture (USDA) provides distance learning and tele- medicine loans and grants which assist in developing technological and/or medical services in rural areas (through the USDA Rural Utilities Service), including a broadband program to assist in installation of internet technology in rural small towns, business loans, tech assistance, and helps establish empowerment zones for rural areas. Community Based Economic Development Program (CBED) provides funding assistance to local governments and community-based organizations that undertake planning, development and technical assistance projects that support business development. U.S. Small Business Administration’s Certified Development Company (504) Loan Pro- gram provides growing businesses with long-term, fixed-rate financing for major fixed assets, such as land and buildings. 504 loans can be used to fund land purchases and improvements, grading, street improvements, utilities, parking lots and landscaping, construction of new facilities, or modernizing, renovating or converting existing facilities. For additional information about any of the above programs, see the Marquette County Com- prehensive Plan.

8. Economic Development Assessment This Comprehensive Plan must “assess categories or Town Survey Results particular types of new businesses and industries Residents preferred the following that are desired by the local government unit.” types of non-residential development The Town is generally interested in small-scale for the Montello area: trades and businesses, as well as moderate scale industrial development and tourism. Small scale retail Town participants have generally suggested that Small to moderate scale industrial City locations for most of these uses would be preferred, due to the greater number of utilities Tourism and services available in the City. Figure 22 shows strengths and weaknesses with respect to attracting and retaining these businesses and industries in the Town based on input from the Town Plan Commission.

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Figure 22: Town of Montello Strengths and Weaknesses for Economic Development

Strengths Weaknesses Transportation system and access Limited population base (STH 22, 23, CTH C) Natural resources, especially lakes No public utilities in Town, limitations of septic systems along lakes Attractive living environment Large amount of undevelopable land

Tourism and recreation-based development; Natural area impacts of development proximity to other tourist destinations Possible partnerships with the City, Market for light industry limited particularly in downtown revitalization and industrial development “Gathering place” of Marquette County Not located on Interstate

B. ECONOMIC DEVELOPMENT GOALS, OBJECTIVES, POLICIES, AND PROGRAMS Goal: Encourage high-quality economic development opportunities in the Montello area. Objectives: a. Work with the City to diversify economic opportunities – including encouraging more retail, general commercial, and industrial development in the Montello area. b. Work with the City to focus commercial and industrial uses – for instance, in planned areas along STH 22 and 23. c. In areas of the Town distant from the City, focus economic development efforts on natural resources, farming, nature and farm-related businesses, open space-related businesses, and small, community-serving businesses in areas planned for such uses. d. Discourage unplanned, continuous strip commercial development along the major highways. e. Promote the careful placement and design of mineral extraction sites, wireless telecommunication facilities, and other uses that may have a significant visual, environmental, or neighboring property impact. f. Accommodate high quality employment opportunities in areas planned for commercial and industrial uses on May 4. Policies and Programs: a. Plan for a sufficient supply of developable land for commercial and industrial uses, in areas consistent with the planned land uses shown on Map 4, and of a scale and type consistent with the Town’s rural character and service availability. Based on the analysis presented in Chapter Three, the necessary supply of land for these types of uses in the Town is minimal. Planned areas along the STH 22 and 23 corridors are generally the only area in the

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Town appropriate for such uses, aside from scattered home-based businesses. These areas should be planned and developed in coordination with the City, County, and landowners. b. Direct large-scale commercial and industrial uses toward the City of Montello, where public sewer and water services are available, and police, fire, and other services are closer. High quality economic development in the City of Montello will benefit Town residents too. The Town and City might consider several tools to work cooperatively on accommodating such development, including boundary agreements and possibly revenue sharing. These are discussed in more detail in the Chapter Eight, Intergovernmental Cooperation, and Chapter Nine, Implementation. c. Outside of the planned General Business area shown on Map 4 along STH 22 and near the City, encourage businesses related to farming and recreation, including home occupations and “cottage industries” that are compatible with the rural nature of the area. d. Cooperate in a County-wide effort to create a balanced rural economy. The Town’s natural resources provide opportunities for production, tourism, and other nature-based economic development activities. The Town should work with the County and City to seek economic development strategies that capitalize on the Town’s natural resource base, such as: Supporting the economic health of production agriculture and forestry in the Town. Supporting exploration of “non-traditional” forms of agriculture and forestry, such as vegetable, fruit and nut farms, and other small-acreage farms; grazing; research farming; community-supported agriculture; equine centers; businesses supporting hunting, fishing, and other outdoor recreational activities; and production of specialty products. Considering ways to promote and market farm products and agriculture-related activities, such as seminars, markets, farm days, and festivals. Crafting a County-level tourism plan that, once implemented, may provide a stable economic base that is able to weather changes in consumer preferences and take advantage of four-season opportunities. e. Coordinate with the City and WisDNR to pursue funding to clean-up and re-use contaminated or “brownfield” sites in the Montello area. f. Work with the County to administer the County’s performance standards (e.g. collocation, screening, landscaping, camou- flaging) when reviewing applications for wireless communications facilities. g. When reviewing applications for non-metallic mineral extraction sites, refer to the standards listed in Chapter Two and County zoning standards.

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h. When reviewing applications for new commercial or industrial development projects, the Town should refer to the policies for General Business and Industrial Areas in Chapter Three and the following design standards: High-quality signage treatment that is based on the area of building frontage, road frontage and façade area. The use of monument signs should be encouraged instead of pole signs. Retention of existing vegetation and high quality landscaping treatment of bufferyards, street frontages, paved areas and building foundations. Intensive activity areas such as building entrances, service and loading areas, parking lots, and trash receptacle storage areas oriented away from less intensive land uses. Parking lots landscaped with perimeter landscaping and/or landscaped islands, along with screening (hedges, berms, trees, and decorative walls) to limit views from streets and adjacent residential uses. Parking to the sides and rear of buildings wherever possible, rather than having all parking in the front. Interconnected parking lots and driveways to facilitate on-site movement. Location of loading docks, dumpsters, mechanical equipment, and outdoor storage areas behind buildings and complete screening through use of landscaping, walls, and architectural features. Screening where industrial uses abut non-industrial uses, in the form of hedges, evergreen trees, berms, decorative fences or a combination. Location of loading areas at the rear of the building. Limited use of chain-link and other non-decorative fencing. Illumination from lighting kept on site through use of cut-off, shoebox fixtures. High-quality building materials and architectural details, like canopies, awnings, trellises, bays, and windows to add visual interest to facades. Variations in building height and roof lines.

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CHAPTER EIGHT: INTERGOVERNMENTAL COOPERATION

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This chapter contains a compilation of background information, goals, objectives, policies and recommended programs for joint planning and decision making with other jurisdictions.

A. EXISTING REGIONAL FRAMEWORK The following is a brief description of the governmental Intergovernmental cooperation is framework for the Town of Montello and its relation- a keystone element of the Town ship to other units of government. Map 1 shows the of Montello’s planning process. boundaries of the various jurisdictions. Currently, the Montello and Marquette County’s Town is not party to any plans or agreements under other towns, cities and villages not §66.0307 or §66.0309, Wisconsin Statutes. The Town is only share common boundaries, party to general cooperative agreements for fire, rescue, but also school attendance areas, road maintenance, and other services with neighboring watersheds, bike routes, fire pro- towns, the City, and the County under §66.0301. tection services, emergency medical services, roads, lakes, rivers, 1. Surrounding Towns and rural-based economies. Rec- The Town of Montello is one of 14 civil towns in ognizing the wisdom and benefit Marquette County. Montello is surrounded on four in joint planning, the Town of sides by other Marquette County towns. The Town Montello, Marquette County and of Packwaukee shares Montello’s western bound- 16 of its other local governments ary, the Town of Shields is located to the north, the (including the City) agreed to Town of Buffalo is located to the south, and the work together to develop individ- Town of Mecan is adjacent to the east. Shields, ual comprehensive plans. Packwaukee, and Buffalo participated in the County- wide planning process. Like Montello, Packwaukee has adopted the County’s general zoning ordinance and districts. Although the Towns of Shields, Mecan and Buffalo have not adopted County zoning, the County’s shoreland, wetland, and floodplain zoning ordinances are in effect in all Towns. The Town of Shields has discussed the future possibility of zoning during the comprehensive planning process. The Town of Marquette in Green Lake County borders Montello to the east. The land uses that border the Town of Montello are predominantly vacant, agricultural, and wetland – much of which is in the Grand River Marsh State Wildlife Area, with some housing along the Fox River. The Town of Marquette has adopted Green Lake County general zoning. In addition, it is subject to County subdivision, floodplain, wetland, and shoreland ordinances. The Town of Marquette adopted a Comprehensive Plan in March 2003; this plan intends that land uses near Montello will remain agricultural/vacant and in wetland. All neighboring towns received draft and final versions of this Comprehensive Plan. There are no apparent existing or potential conflicts among this Plan for the Town of Montello and the plans of adjoining towns.

2. City of Montello The City of Montello is the County seat of Marquette County. The City grew about 5 percent between 1990 and 2000 and its estimated 2004 population was 1,447. The City has zoning and subdivision ordinances to regulate land use. The City of Montello and Town of Montello have a very close historical arrangement. This has carried forward to the present day with shared services, schools, shopping areas,

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lakes, and other community features. Clearly, most residents of the Town and City consider themselves to be part of the “Montello Community.” The City participated with the Town in the Marquette County planning process. The Town and City consulted with each other throughout the process to maximize consistency between their two plans. There are no apparent existing or potential conflicts between these plans, although further discussion on Plan implementation are advised over the next several years.

3. Marquette County Marquette County covers 455 square miles and is located in the south central part of Wis- consin. The County is situated about 50 miles north of Madison, 110 miles northwest of Milwaukee, and 200 miles northwest of Chicago. The County’s estimated 2004 population is 15,051 residents. The County is made up of 19 local units of government: 14 towns, 4 villages, and 1 City. All of these local jurisdictions are populated with less than 2,000 people, with only a few exceeding 1,000 people. The County has an adopted farmland preservation plan, outdoor recreation plan, land and water resources management plan, erosion control plan, zoning ordinance, land division ordinance, exclusive agricultural zoning district, and highway access control plan. The County has prepared its first-ever comprehensive plan, in coordination and cooperation with local units of government. The Land Use chapter of the County’s plan is a compilation of the various local jurisdiction plans. There are no conflicts between this Town Plan and the County plan

4. Neighboring Counties Green Lake County to the east of Marquette County is more populated and has a higher density of residential development than Marquette County. Green Lake’s estimated 2003 population was 19,538. Towns in Green Lake County are subject to a subdivision ordinance; and floodplain, wetland, and shoreland ordinances, all administered by the County. Green Lake County recently adopted a plan under the State Comprehensive Planning legislation. There are no apparent existing or potential conflicts with this Town of Montello Plan.

5. Regional Planning Jurisdiction Marquette County is in the East Central Wisconsin Regional Planning Commission’s (ECWRPC) planning jurisdiction, although the County is not an official member. The ECWRPC is the regional planning agency for the counties of Calumet, Fond du Lac, Green Lake, Marquette, Menominee, Outagamie, Shawano, Waupaca, Waushara and Winnebago. Planning services provided by the Commission include comprehensive and land use planning; transportation improvement and corridor planning; open space, recreational and environmental planning; economic development; demographic information and projections; technical assistance to local governments; Geographic Information Services and aerial pho- tography distribution. In 2001, the ECWRPC began developing a region-wide framework plan for the 10 counties that it represents. This regional planning effort, financed in part by the State’s grant program, addresses all nine elements specified in the State legislation. The plan’s focus is to identify issues of regional significance and to develop policy and best practice examples to help guide future land use decisions within the region. It is scheduled for completion in 2005. The plan’s inventory information and maps for the region were compiled in the ECWRPC’s State of the Region Report, prepared in 2003.

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6. Important State and Federal Agency Jurisdictions There are several State agencies that affect planning in Marquette County. The County is located within the Wisconsin Department of Transportation’s (WisDOT) District 4 Region, with its regional office in Wisconsin Rapids. The County is located in the Wisconsin De- partment of Natural Resources’ (WisDNR) Northeast Region, with its regional office in Green Bay and its service center office in Wautoma. The University of Wisconsin Exten- sion office is located in Montello and serves as an educational resource for County residents. The Town recognized the importance of working with these regional, State, and federal agencies during the course of this plan preparation process; particularly in data gathering and discussing specific planning issues. There are no apparent existing or potential conflicts between Montello’s Plan and the plans, policies, and programs of State and federal jurisdictions. 7. School Districts The majority of the Town of Montello is served by the Montello School District, which services most of the north and northwest part of Marquette County. The very southeastern corner of Montello is served by the Markesan School District. There are not known existing or potential conflicts between the plans, policies, and programs of the School Districts and Montello’s Plan. The Town of Montello is within the Madison Area Technical College (MATC) District.

B. INTERGOVERNMENTAL COOPERATION GOALS, OBJECTIVES, POLICIES, AND PROGRAMS Goal: Create and build on mutually beneficial intergovernmental relations with surrounding and overlapping governments. Objectives: b. Work with the City of Montello, other surrounding local governments, Marquette County, local school districts, and State agencies on land use, natural resource, transportation, and community development issues of mutual concern. c. Explore an intergovernmental boundary and land use agreement with the City, or at least closer consultation on these matters. d. Cooperate with neighboring governments, school districts, Marquette County and State agencies on providing shared services and planning for future public facility and service needs. e. Participate in County-level transportation, land use, and economic development efforts. f. Work with surrounding communities to encourage an orderly, efficient land use pattern that preserves rural character and minimizes land use conflicts. g. Stay informed on activities of the School District to ensure the Town has the opportunity to be involved in decisions that affect Town residents, such as building improvements, tax issues, and transportation.

Policies and Programs: a. Provide copies of this Comprehensive Plan and all future amendments to all surrounding government jurisdictions.

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b. Cooperate with other units of government on natural resources, recreational areas, transportation facilities, and other systems that are under shared authority or cross governmental boundaries. c. Cooperate with other units of government, including lake organizations, the County, and WisDNR on preservation of natural resources (as discussed in greater detail in Chapter Two), for instance: Stay informed and involved in WisDNR management of the Grand River Marsh State Wildlife Area, in particular decisions to expand within the project boundaries. Work with the State and lake organizations to procure support for lake management activities. Work with WisDNR to ensure protection of groundwater, support woodland management efforts, monitor dam repair and maintenance, protect rare species and wildlife habitat, and monitor large-scale livestock operations. d. Work with the County and State Department of Transportation on maintaining and improving the Town’s transportation system (as discussed in detail in Chapter Five), including: Town road maintenance and upgrades. Address speeding through signage and speed zones, especially on CTH F out to CTH XX. Meet roadway and signage standards for bicycles. Update design and layout standards for new town roads. Develop a driveway ordinance. Alleviate potential traffic congestion and access control on State highways. Provide other options for to serve the transportation needs to groups in need, such as the elderly and disabled. e. Participate with other units of government – especially the City of Montello and Marquette County - on shared facility and community utility concerns, including: Agreements related to fire and EMS service provision. Cooperation with the County on a Solid Waste Management Grant through USDA to expand the program to collect recyclables. Coordination, and agreement, where possible with the City of Montello regarding the provision of sanitary sewer service to residential and non-residential development near the borders of the City and Town. Discussion and coordination with the City, County, and White Lake Management Dis- trict about future alternatives for waste collection, treatment and disposal for the White Lake Area, as well as other areas in the Town with concentrated development as needed in the future.

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Coordination with the School District for siting and building public facilities and sharing public services. Currently, the District is not anticipating increased enrollment and therefore there are no new or expanded facilities under consideration. f. Work with the City of Montello, Marquette County, and State and federal agencies to support adequate housing opportunities for residents, including: Maintenance of housing and residential areas by working with the County to en- force existing regulations limiting incompatible uses (e.g. “junkyards”). Housing rehabilitation through CDBG funds. g. Coordinate economic development initiatives with other units of government, including: Participate with Marquette County and other communities on an economic development initiative to promote a balanced rural economy for the area – including initiatives related to entrepreneurship, forestry and agricultural production, and resource-based tourism. Explore remediation and re-use of contaminated sites in the Montello area. Determine, with the City of Montello, the most appropriate means to provide utilities and services to commercial and industrial development planned for areas near the City. h. Work with the County and other communities in the County on changes to the County zoning and subdivision ordinances to further the policies and recommendations of this Plan. These changes are discussed in detail in Chapter Nine, Implementation. i. Changes to the State’s Smart Growth law went into effect on May 7, 2004. The amended law requires that a local government develop written procedures describing the methods that will be used to distribute proposed, alternative, or amended plan elements to which an allowable use or intensity of use will be changed by the Plan. In addition to property owners, this notification must be sent to the following stakeholders. Metallic mine operators (permitted or with a pending permit); Any person who has registered a marketable nonmetallic mineral deposit with the local government1, and; Any other property owner or leaseholder who has requested notification in writing. Under the revised law, local governments completing a comprehensive plan must notify these additional parties in writing 30 days in advance of the public hearing for the plan. Pub- lic notices issued after May 7, 2004 should include notification of these property owners. j. Continue intergovernmental discussions and consider an intergovernmental boundary and land use agreement with the City of Montello as process to resolve potential conflicts. More details on topics that may be covered in an intergovernmental agreement follow.

1 According to State statute 295.20(1)(a)(1) a landowner must notify each County, city, village, and town that has authority to zone the lands his or her property is located within of the intent to register a marketable nonmetallic mining deposits with the County Register of Deeds.

May 2005 117 Town of Montello Comprehensive Plan

C. POTENTIAL TOWN-CITY INTERGOVERNMENTAL AGREEMENT The City and Town of Montello may consider entering into a formal intergovernmental agreement covering community development issues of mutual concern. These issues may include municipal boundaries, extraterritorial rights, economic development, rural development, growth management, sanitary sewer and water service provision, or even shared revenues from new development. An agreement such as this would help the communities minimize competition for development, share both the costs and benefits of economic development, make sure that future development is of high quality, provide all parties with a greater sense of certainty on the future actions of others, and promote municipal efficiency in an era of diminishing government resources. There are two main formats for intergovernmental agreements under Wisconsin Statutes. The first is available under Section 66.0301, which allows any two or more communities to agree to cooperate for the purpose of furnishing services or the joint exercise of any power or duty au- thorized under State law. While this is the most commonly used approach, a “66.0301” agreement is limited by the restriction that the municipalities must be able to exercise co-equal pow- ers. Another format for an intergovernmental agreement is a “cooperative plan” under Section 66.0307 of the Wisconsin Statutes. This approach is more labor intensive and ultimately requires State approval of the agreement, but does not have some of the limitations of the “66.0301” agreement format. The following is a draft outline of issues that an intergovernmental agreement could cover. Often, intergovernmental agreements are executed after a year or more of meetings, research, consideration of options, writing, and legal review. a. Municipal Boundary Changes: Intergovernmental agreements between cities and towns frequently suggest limits to long-range municipal annexation, generally in exchange for some compromises from the Town. Such compromises may include the town’s agreement not to legally contest any annexation petition that is within the agreed annexation area and/or to limit town development in the possible future annexation area. Where there are annexations, responsibilities for road maintenance and upgrades can be confusing or controversial. Provi- sions for future maintenance, upgrades, or extensions of roads are often covered in intergovernmental agreements. Within the context of an intergovernmental agreement between the City and Town of Mon- tello, future (e.g., through 2025) annexation area boundaries could follow the edges of planned Single-Family Residential – Sewered, General Business, and General Industrial areas shown on Map 4. Outside of that area, the City would agree not to annex land. Inside that area, the Town could agree not to promote development before annexation or to contest any annexation. b. Utility Service Area Boundaries: Some intergovernmental agreements include provisions that define where public sewer and/or water services may be extended and where they may not over the term of the agreement. These areas largely define where fairly intensive urban (public sewer) growth may occur or existing rural development areas that might require sewer. Some agreements include provisions that do not allow further intensive development with on-site waste disposal systems in such designated utility service areas. These areas may extend beyond current municipal limits, for example into areas where future municipal boundary changes are agreed to.

May 2005 118 Town of Montello Comprehensive Plan

In the case of the City and Town of Montello, the utility service area boundary could correspond to the negotiated municipal boundary change area, plus any mutually agreed additional areas or existing lakefront development in the Town. The topic on whether and how sewer connections between these lake areas and the City should also be addressed. c. Future Land Use Recommendations: Frequently, intergovernmental agreements include maps or descriptions that specify future land uses or development densities considered acceptable or unacceptable in areas that concern both communities. For example, the agreement may specify certain areas that both communities agree should remain in open space or at least maintain an open space character as limited development occurs. Some agreements also include provisions that the communities will then amend their comprehensive plans to be consistent with the future land use recommendations negotiated in the agreement, or to not amend their comprehensive plans in a manner that would be inconsistent with the agreement. Within the context of an intergovernmental agreement focused particularly on the Montello area, the negotiations and resulting agreement could focus on provisions to: Amend this Comprehensive Plan and the City of Montello’s Plan as necessary to achieve full compliance with the agreement. It should be noted that this Comprehensive Plan and the draft plan for the City were largely in alignment with respect to land use recommendations in areas of mutual concern. Make development (e.g., rezoning) decisions that are consistent with the amended comprehensive plans and the agreement. Implement innovative approaches to achieving shared growth management and land use objectives. This may include cooperative extraterritorial zoning, whereby the City and Town could jointly (and without the County) make zoning decisions within 1½ miles of the City. d. Joint Economic Development Efforts: An intergovernmental agreement provides a potential tool to establish joint economic development or marketing efforts to the mutual benefit of each community. Some of the more innovative agreements include provisions on sharing property tax revenue from new development or mitigating tax losses resulting from annexation. For example, an agreement may include a provision specifying that participating communities would share property tax revenue from certain types of new developments (e.g., commercial or industrial). This tends to minimize competition for development, increases development quality, and equalizes municipal “winners and losers” resulting from new development. State annexation law requires a city or village annexing town land to pay the town, for five years, an amount equal to the amount of property taxes collected in the area in the year in which the annexation was final. This requirement does not apply to areas where other agreements exist. Within the context of an intergovernmental agreement focused on the Montello area, the negotiations and resulting agreement could focus on provisions to: Jointly pursue State, federal, and County economic development grants and incentives to promote business, tourism and light industrial development.

May 2005 119 Town of Montello Comprehensive Plan

Cooperatively plan for economic development areas mutually agreed areas primarily along STH 22 and 23, and CTH F, and not promote economic development in other areas. Consider a revenue sharing agreement for new municipal taxes generated from development in some of these areas. e. Shared Programs or Services: The most common types of intergovernmental agreements focus on shared services or programs between communities. The City and Town of Mon- tello already have such an agreement with respect to fire and EMS services. The management of recreational lands and programs is another service that is occasionally shared across municipal boundaries. Within the context of an intergovernmental agreement between the City and Town, the communities could discuss greater opportunities for cooperation or consolidation of recycling and waste management. Another issue that could be advanced through the intergovernmental agreement is a joint commitment to work with WisDNR and potentially non- profit groups to improve upon local and regional parks. f. Agreement Term and Amendments: An intergovernmental agreement should specify the length of time that it is applicable. Twenty years is a typical timeframe (e.g., through 2025), as this corresponds with local comprehensive planning time horizons. Occasionally, agreements have provisions for automatic extensions if neither party decides to withdraw. Most agreements also include provisions for periodic review and possible amendments if both parties agree. This keeps the agreement fresh in people’s minds and allows adaptability as conditions change.

May 2005 120 Town of Montello Comprehensive Plan

May 2005 121 Town of Montello Comprehensive Plan

CHAPTER NINE: IMPLEMENTATION

May 2005 122 Town of Montello Comprehensive Plan

This final chapter provides a roadmap for specific actions necessary to fully implement the Plan’s recommendations. This chapter generally does not cover day-to-day decisions. Instead, it identifies programs and specific actions that the Town may undertake over the next several years.

A. PLAN ADOPTION The Town of Montello Comprehensive Plan was adopted following procedures specified by Wiscon- sin’s “Smart Growth” legislation. This included extensive public input throughout the process, a Town Plan Commission recommendation, distribution of the recommended Plan to affected local, County, and State governments, a formal public hearing, and Town Board adoption of the Plan by ordinance.

B. IMPLEMENTATION RECOMMENDATIONS Figure 23 provides a detailed list and timeline of the major actions that the Town may pursue to implement the Comprehensive Plan. Often, such actions will require substantial cooperation with others, including County government and local property owners. Other Town government priorities, time constraints, and budget constraints may affect the completion of the recommended actions in the timeframes presented. The table has three different columns of information, described as follows: Category: The list of recommended actions is divided into six different categories generally based on different chapters of this Plan. Program or Recommended Action: The second column lists the actual actions recommended to implement key aspects of the Comprehensive Plan. The recommendations are for Town actions that might be included, for example, in an annual work program or as part of the annual budgeting process. Implementation Timeframe: The third column responds to the State comprehensive planning statute, which requires implementation actions to be listed in a “stated sequence.” The suggested timeframe for the completion of each recommendation reflects the priority attached to the recommendation. Suggested implementation timeframes are all within the next 10 years (and not the full 20-year planning period), because the Plan will have to be updated by 2015.

May 2005 123 Town of Montello Comprehensive Plan

Figure 23: Recommended Implementation Actions

Implementation Category Program or Recommended Action Timeframe Work with Marquette County, the WisDNR, and neighboring communities to promote local and regional 2005 and Ongoing natural resources for tourism Work cooperatively with neighboring governments, lake organizations, the County, WisDNR and community 2005 and Ongoing stakeholders to maintain the quality of the Town’s water resources. Agricultural, Natural, Remain involved in WisDNR decisions relating to the and Cultural management and project boundaries of the Grand River 2005 and Ongoing Resources Marsh State Wildlife Area. Contact the regional WisDNR office to request that the Town be officially notified of all pending Confined Ani- 2005 mal Feeding Operation permit applications in the Town and participate in the processes. Cooperate with the County on a comprehensive survey of historic and archeological resources, and promotion of 2008 – 2010 “heritage tourism” County-wide. Work with Marquette County Planning and Zoning and other Towns to amend the County zoning and subdivision ordinances and maps to better implement the Town’s objectives, such as: Allow clustering in the Agricultural zoning districts. Develop a district that accommodates planned General Industrial uses better than the current CM district 2006-2008 Better address sign and billboard placement. Require site and building plan approval for commercial and industrial development projects. Land Use Allow local regulation of uses that may pump and remove large volumes of water. Require submittal of a site plan or preliminary plat for specific development proposals (residential, commercial Ongoing or industrial) before approving the rezoning of land to the appropriate development-based zoning district. Help monitor potential contamination of groundwater in the areas with high concentrations of septic systems, such as surrounding White, Buffalo, or Montello Lakes 2005 and Ongoing and develop long-term approaches to sanitary waste treatment. Work with the County to have all desired town road im- Transportation 2005 and Ongoing provements listed on the County’s five year plan.

May 2005 124 Town of Montello Comprehensive Plan

Implementation Category Program or Recommended Action Timeframe Work with the County, City and State to address speed- 2006 – 2010 ing and traffic congestion in the Montello area. Develop and adopt a Town or County driveway/private roads ordinance, and discuss options for possible County 2006-2008 enforcement. Work with the County on transportation options for those without access to vehicles, and to link residents to Ongoing programs. Consider adopting a Town Road Specifications Manual (suggested for County preparation) to implement the 2008 – 2010 recommendations of this Comprehensive Plan. Explore locally accepted methods of limiting junk accumulation and preserving views along Town roadways – 2008 – 2010 including consideration of a Town maintenance code Work with the County and neighboring communities on 2005 – 2007 improving fire and EMS service delivery. Cooperate with the City to designate sewer service expansion boundaries. This will determine how future resi- 2005 – 2007 dential, commercial, and industrial development border- Utilities and ing the City is most appropriately served. Community Facilities Continue to work with the City and White Lake Man- agement District to study alternative methods of provid- 2005 – 2007 ing alternative waste disposal and treatment systems. Consider a cooperative service agreement for collection 2008 – 2010 of refuse and recyclables. Work to connect older residents and others in need of housing assistance with available resources to help them Ongoing Housing, Neighbor- update and stay in their homes. hood, and Economic Development Coordinate with the County, City and State on potential funding resources for housing rehabilitation and eco- 2005 – 2007 nomic development, such as CDBG. Provide a copy of this Comprehensive Plan and all subse- 2005 and as amended quent amendments to surrounding local governments. Encourage Marquette County Board adoption of this 2005 Comprehensive Plan as presented. Intergovernmental Cooperation (see also Stay informed on, and participate in County-level trans- Chapter Eight) portation, zoning and economic development compre- 2005 and Ongoing hensive planning efforts. Consider potential intergovernmental boundary and land use agreement with the City of Montello, in discussion 2005 – 2007 with the City.

May 2005 125 Town of Montello Comprehensive Plan

C. PLAN MONITORING, AMENDMENTS, AND UPDATE The Town should regularly evaluate its progress towards achieving the recommendations of the Comprehensive Plan, and amend and update the Plan as appropriate. This section suggests recommended criteria and procedures for using, monitoring, amending, and updating the Plan.

1. Plan Monitoring and Use The Town Plan Commission should, on an annual basis, review its decisions on private development proposals over the previous year against the recommendations of this Plan. This will help keep the Plan a “living document.” The Town should constantly evaluate its decisions on private development proposals, public investments, regulations, incentives, and other actions against the recommendations of this Comprehensive Plan. Before submitting a formal application to the Town and/or County for development approval, the Town urges petitioners to discuss the request conceptually and informally with the Town Plan Commission. Conceptual review almost always results in an improved development product and can save the petitioner time and money.

2. Plan Amendments Amendments to this Comprehensive Plan may be appropriate in the years following initial Plan adoption and in instances where the Plan becomes irrelevant or contradictory to emerging policy or trends. “Amendments” are generally defined as minor changes to the Plan maps or text. Frequent amendments to accommodate specific development proposals should be avoided. The State comprehensive planning law requires that the Town use the same basic process to amend, add to, or update the Comprehensive Plan as it used to initially adopt the Plan. This does not mean that new vision forums need to be held or old committees need to be re- formed. It does mean that the procedures defined under Section 66.1001(4) Wisconsin Stat- utes need to be followed. Specifically, the Town should use the following procedure to amend, add to, or update the Comprehensive Plan: a. Either the Town Board or Plan Commission initiates the proposed Comprehensive Plan amendment. This may occur as a result of a regular Plan Commission review of the Plan, or may by initiated at the request of a property owner or developer. b. The Town Board adopts a resolution outlining the procedures that will be undertaken to ensure public participation during the plan amendment process (see Section 66.1001(4)a of Statutes). c. The Town Plan Commission prepares or directs the preparation of the specific text or map amendment to the Comprehensive Plan. d. The Town Plan Commission holds one or more public meetings on the proposed Com- prehensive Plan amendment. Following the public meeting(s), the Plan Commission makes a recommendation by resolution to the Town Board by majority vote of the entire Commission (see Section 66.1001(4)b of Statutes and model resolution in this Plan). e. The Town Clerk sends a copy of the recommended Plan amendment (not the entire Comprehensive Plan) to all adjacent and surrounding government jurisdictions as required under Section 66.1001(4)b, Wisconsin Statutes. At this time, the recommended Plan amendment should also be forwarded to Marquette County Planning and Development

May 2005 126 Town of Montello Comprehensive Plan

Department staff for their informal review. (It is very important to cooperate with Mar- quette County in planning processes, including forwarding all Town-approved amendments to the County. Because of shared development review authority, it is very important that the Town and County essentially share the same plan for lands in the Town of Montello.) Metallic mine operators, any person who has registered a marketable nonmetallic mineral deposit with the local government, and any other property owner or leaseholder who has requested notification in writing must be informed through this notice procedure. These governments should have at least 30 days to review and comment on the recommended plan amendment. f. The Town Clerk directs the publishing of a Class 1 notice, with such notice published at least 30 days before a Town Board public hearing and containing information required under Section 66.1001(4)d, Wisconsin Statutes. g. The Town Board holds the formal public hearing on an ordinance that would incorporate the proposed amendment into the Comprehensive Plan. h. Following the public hearing, the Town Board approves (or denies) the ordinance adopting the proposed Plan amendment. Adoption must be by a majority vote of all members. The Town Board may require changes from the Plan Commission recommended version of the proposed Plan amendment. i. The Town Clerk sends a copy of the adopted ordinance and Plan amendment (not the entire Comprehensive Plan) to all adjacent and surrounding government jurisdictions and metallic mine operators, any person who has registered a marketable nonmetallic mineral deposit with the local government, and any other property owner or leaseholder who has requested notification in writing as required under Sections 66.1001(4)b and c, Wisconsin Statutes. j. The Town Clerk sends copies of the adopted Plan amendment to the Marquette County Planning and Development Department for their incorporation and, as appropriate, into the County’s Comprehensive Plan.

3. Plan Update The State comprehensive planning law requires that the Comprehensive Plan be updated at least once every ten years. As opposed to an amendment, an update is often a substantial re-write of the plan document and maps. Further, on January 1, 2010, zoning, subdivision and official map decisions will have to be consistent with locally-adopted comprehensive plans. Based on these two deadlines, the Town should implement the recommendations included in Fig- ure 23 and complete a full update its Comprehensive Plan before the year 2015 (i.e., ten years after 2005) at the latest. The Town should continue to monitor any changes to the language or interpretations of the State law over the next several years.

D. CONSISTENCY AMONG PLAN ELEMENTS The State comprehensive planning statute requires that the implementation element “describe how each of the elements of the comprehensive plan shall be integrated and made consistent with the other elements of the comprehensive plan.” Preparing the various elements of the Town of Montello Comprehensive Plan simultaneously has ensured that there are no known internal incon- sistencies between the different elements of this Plan.

May 2005 127 Town of Richford Town of Coloma Town of Dakota Town of Marion Town of Richfield W a u s h a r a C o u n t y Town of Montello Comprehensive Plan 1

Village of Town of Seneca Neshkoro Springfield Corners Town of Crystal Lake Town of Newton Town of Springfield Town of Lincoln Budsin Jurisdictional Boundaries

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p g7 W a u s h a r a C o u n t y E 22 Village of Comprehensive Plan Neshkoro 5

Springfield Corners

Y Town of Newton Town of Crystal Lake E 73 Town of Springfield Planned Transportation and Town of Neshkoro Community Facilities Map CH B Budsin

E N

Village of G Westfield Germania Town/Village/City Halls

r Harrisville County Courthouse

e y Rural Settlements

J e

t Principal Arterial Road E n Minor Arterial Road n J I-39

J Major Collector Road u

L Minor Collector Road

M Town of Harris o

Town of Westfield Town of Shields a Conceptual Route of the Ice Age Trail C

k County Bike Tour Routes A N Snowmobile Trails B e s Y Rail

Town of Mecan Recommended Park and Ride Facility m

Recommended Intersection Improvement Studies a

John Muir Park (USFWS) d

51 A 23 n Mecan

Village of y Oxford 23 City of Town of Packwaukee Montello C C 82 Town of Oxford M Town of Montello Packwaukee D

22 A

Village of Endeavor F B

23 O T

Town of Douglas Town of Buffalo

Town of Moundville O 23 CX 0 2 4 Briggsville Miles T

May 2005 C o l u m b i a C o u n t y