Sheboygan County Comprehensive Plan Adopted

CHAPTER 1 – ISSUES AND OPPORTUNITIES

INTRODUCTION The Sheboygan County Comprehensive Plan was developed through an intensive public participation and review process and is intended to be reflective of the values, goals, and vision of the residents and communities that comprise Sheboygan County. The development of this Plan, along with many of the more detailed comprehensive plans for Sheboygan County’s local communities, was made possible through the State of Wisconsin Comprehensive Planning Grant Program administered by the Wisconsin Department of Administration – Division of Intergovernmental Relations. Sheboygan County is developing its plan in cooperation with municipalities and in a cooperative planning effort with the Towns of Holland, Lima, Plymouth, Scott, Sheboygan, and Sheboygan Falls, the Village of Cascade, and the City of Sheboygan Falls. The Sheboygan County Comprehensive Plan is not intended to pre-empt local comprehensive plans developed under Wis. Stats. 66.1001 that address the 14 State of Wisconsin comprehensive planning goals. Rather, the plan is intended to be a framework or “toolbox,” which can provide local communities with concepts and ideas (tools) to implement the objectives set forth in their own localized comprehensive plans while still maintaining a coordinated and consistent vision with the Sheboygan County Comprehensive Plan.

PURPOSE AND INTENT OF THE COMPREHENSIVE PLAN The purpose of the Comprehensive Plan is to guide growth for a 20-year time frame. This Plan contains a potential future land use map designating generalized areas to serve as locations for future land use activities. This map is based on the designations of each of the municipalities within the County because Sheboygan County does not administer countywide zoning, but the County administers other countywide ordinances. This Plan will be an umbrella under which all local plans will be placed. This Plan is not meant to supersede the individual municipalities’ plans, but it will acknowledge inconsistencies between the plans.

A comprehensive plan is an official public document adopted by ordinance by the local government that sets forth its major policies concerning the future physical development of the community. This plan is prepared or amended under s. 66.1001. The primary purposes of this Plan are to generate goals for attaining a desirable development pattern, devise strategies and recommendations the County can follow to achieve its desired development pattern, and meet the requirements of the State of Wisconsin Comprehensive Planning Law. It is intended that the recommendations in this Plan reflect the 14 local comprehensive planning goals prescribed in state statute and listed below:

1. Promotion of the redevelopment of lands with existing infrastructures and public services and the maintenance and rehabilitation of existing residential, commercial, and industrial areas. 2. Encouragement of neighborhood designs that support a range of transportation choices. 3. Protection of natural areas, including wetlands, wildlife habitats, lakes, woodlands, open spaces, and groundwater resources. 4. Protection of economically productive areas, including farmland and forests.

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Sheboygan County Comprehensive Plan Adopted

CHAPTER 9 – IMPLEMENTATION INTRODUCTION The completion of Sheboygan County’s Comprehensive Plan should be celebrated as a significant milestone in providing guidance for the future development and redevelopment in Sheboygan County. It is important that County and local officials quickly understand the connection between planning and land use controls (e.g., zoning and subdivision ordinances). Planning by itself accomplishes little; only when the recommendations made in the plan are implemented through actions ― such as amending a map, adopting a new policy, or revising an ordinance, for example ― does real change come about. There are several regulatory tools and administrative mechanisms and techniques that can be utilized to implement the plan. Although this chapter does not include all of the recommendations in the comprehensive plan, it does summarize most of the action steps the County should take to implement the recommendations. This element includes a process for updating and amending the Comprehensive Plan. A comprehensive plan under this subsection shall be updated no less than once every 10 years. This chapter also provides information on the comprehensive plan amendment/update process and its overall use by Sheboygan County.

ROLE OF THE COMPREHENSIVE PLAN Wisconsin Statute 66.1001 (3) stipulates that the land controls governing a community be consistent with the community’s adopted comprehensive plan. Sheboygan County’s Planning, Resources, Agriculture, and Extension Committee has the primary responsibility to implement this Comprehensive Plan and to ensure that all supporting County ordinances are consistent with the Plan. When reviewing any petition or when amending any land controls within the County, the Plan shall be reviewed, and a recommendation will be derived from its vision statement, goals, objectives, policies, programs, and 20-Year Potential Land Use Map. If a decision needs to be made that is inconsistent with the Comprehensive Plan, then the Comprehensive Plan must be amended to include this change in policy before the decision can take effect.

ROLE OF LOCAL OFFICIALS Elected Officials The County’s elected officials should strive to become familiar with the contents of this Comprehensive Plan. It should be their primary guide, although not their only guide. County Board members must make their decisions from the standpoint of overall community impact ― tempered by site specific factors. In this task, board members must balance the recommendations made in this Plan with the objectives of developers and residents, the recommendations of advisory boards, along with their own judgment.

The County must also see that community support and resources are maintained to ensure the County’s 20-Year Comprehensive Plan stays current and viable.

Planning, Resources, Agriculture, and Extension Committee Planning, Resources, Agriculture, and Extension Committee Members need to become very familiar with this Plan’s maps and text, as well as its stated vision, goals, objectives, policies, and programs. The Planning, Resources, Agriculture, and Extension Committee will likely need to make appropriate amendments to the Plan from time to time in order to adapt to changing circumstances. The Planning, Resources, Agriculture, and Extension Committee should also ensure that existing and future ordinances are consistent with the Comprehensive Plan. Finally, the Planning,

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Resources, Agriculture, and Extension Committee will need to be sure that the Comprehensive Plan is updated at least once every 10 years.

Board of Adjustments The County Board of Adjustments consists of five members appointed by the Chairperson of the County Board, subject to confirmation by the County Board. The members of the Board of Adjustments shall all reside within those areas of the County which are under the jurisdiction of Chapters 63, 70, and 72, but no two members shall be from the same town. The Board of Adjustments has the power: (a) To hear and decide appeals where it is alleged there is error in any order, requirement, decision, or determination made by the County Planning Department or the Airport Department. (b) To hear and decide special exceptions (also known as conditional uses) to the terms of Chapters 63, 70, and 72 of this Code upon which the Board of Adjustments is required to pass. (c) To authorize upon appeal in specific cases such variance from the terms of Chapters 63, 70, and 72 of this Code as will not be contrary to the public interest, where, owing to special conditions, a literal enforcement of the provisions of said Chapters will result in unnecessary hardship and so that the spirit of said Chapters shall be observed, public safety and welfare secured, and substantial justice done. (d) To allow alternative reclamation requirements to operators of nonmetallic mining sites pursuant to Section 78.18 of this Code.

ROLE OF COUNTY ORDINANCES Zoning Sheboygan County does not maintain a general zoning ordinance. Rather, each city, village and town in the County maintains its own zoning ordinance. The general purpose of these zoning ordinances is typically promotion of a community’s health, safety, morals, prosperity, and welfare.

Several of the future land use recommendations in local municipalities may ultimately need re- zoning in order to take place. This Comprehensive Plan recognizes the preferred land use has a horizon year of 15 to 20 years in the future, while zoning’s authority is immediate upon adoption and posting. Therefore, instances of current use and planned use may conflict, yet it would not be prudent to immediately make a current use non-conforming to meet the preferred land use. Much of the timing of re-zoning will depend heavily on market forces, the current political climate, and the accuracy of the municipalities plans’ assumptions.

Other Controls Sheboygan County maintains a sanitary ordinance, subdivision ordinance, shoreland and shoreland- wetland ordinance, floodplain zoning ordinance, erosion control and stormwater management, animal waste storage, and non-metallic mining reclamation regulations.

There are a number of other controls that impact planning in Sheboygan County. Since this Comprehensive Plan includes a number of specific implementation activities directly related to some of these controls, it will be important to periodically review existing County codes to ensure consistency with this Plan’s vision, goals, objectives, policies, and programs.

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Changes in standards and policies administered by the state, Sheboygan County, and other municipalities may also effect the implementation of this Plan and should, therefore, be monitored in order to allow the County to make adjustments as necessary.

IMPACT OF ECONOMIC DEVELOPMENT Government Economic Development Initiatives Economic development programs and initiatives are often a primary means of implementing goals in a comprehensive plan. The implementation of most, if not all, of these economic development initiatives will be planned in advance by local officials; therefore, there should be ample opportunity to make sure the impacts of these initiatives will be in harmony with this Comprehensive Plan. It is important that such a comparison takes place. Usually, the impacts are positive, but there may also be downsides. If it is anticipated that an economic development program or initiative being considered for the County may significantly change the character of the County ― and therefore run counter to the vision and goals of this Plan, the economic development program should either be reconsidered, or the Comprehensive Plan should be revisited and amended to allow for the change in character.

Non-Government Economic Development Activities Sometimes, economic development takes place unexpectedly. A small business might greatly expand seemingly overnight, a highway interchange might be constructed, or a similar economic catalyst may occur. It is difficult to stop the momentum generated by such activities, and indeed it is often best to encourage such activities. Nevertheless, it is once again possible that this type of economic development can change community character. Further, since it is unplanned by the local government, this kind of economic development frequently outstrips the community’s existing infrastructure and begins a sometimes never-ending cycle of “catching up,” as the community tries to provide adequate services.

If it becomes increasingly apparent that a privately initiated economic development “boom” is underway, the County must analyze whether the character of the community will be significantly altered and then decide how to respond in a proactive rather than reactive way. It is likely that at least some of the elements in this Comprehensive Plan would have to be revisited and amended.

ROLE OF PUBLIC INVESTMENT Capital Improvements Program (CIP) A CIP is a tool used to ensure a community regularly budgets for and schedules the construction and maintenance of infrastructure. This is typically a major tool in implementing the recommendations made throughout a comprehensive plan ― especially the “Transportation” and “Utilities and Community Facilities” chapters. The County uses this tool as part of its annual budgeting process. For example, the County has put improvements to the Sheboygan County Memorial Airport in its capital improvements program, in order to support the expansion of business at that location.

Impact Fees and Land Dedications Impact fees and land dedications are an appropriate mechanism for financing improvements directly related to new development. The County is no longer able to require impact fees in new developments, but local municipalities are able to use land dedications and impact fees under strict guidelines.

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Special Assessments Special assessments are a tool that local governments have commonly used in Wisconsin for financing public facilities since the late nineteenth century. Special assessments are important because unlike impact fees, special assessments can be applied to existing development and can be used to fund existing deficiencies. The County uses a special assessment, when assessing those property owners within the County that have private on-site wastewater treatment systems.

Development Review Cost-Recovery Many communities can begin to achieve some of their goals and carry out associated policies by requiring developers to reimburse the community for expenses related to ensuring a quality development is constructed. For example, while a community may strongly support the preservation of critical habitat areas, it may not have the means to follow through. However, by requiring a developer to pay for an independent study identifying these areas prior to breaking ground, the community is able to take the first step toward realizing a goal and implementing a policy without having to allocate funding or personnel. Currently, the County does not use this implementation tool.

ROLE OF INTERGOVERNMENTAL COOPERATION Boundary Agreement A boundary agreement is a formal effort to identify precisely which extraterritorial areas may be attached to a village or city. An agreement may also spell out terms for revenue sharing of current and future property taxes in specified areas, among other things. As an implementation tool, a boundary agreement’s ultimate purpose is to promote the goal of harmonious relations between adjacent communities. While this tool has been used successfully in other counties, there are no communities within Sheboygan County that have boundary agreements in place.

Official Map An official map helps a community implement goals and policies regarding safe and efficient transportation systems. Such a map may also be used to reserve land for other future public uses, in particular those identified in a community’s comprehensive plan, recreation plan, or other plans. The County does not currently use this implementation tool, but some municipalities have official maps.

COMPREHENSIVE PLAN INTERNAL CONSISTENCY This Comprehensive Plan was developed as a unified whole under a single vision statement with supportive goals, objectives, policies, and programs. Sheboygan County and the County’s Smart Growth Implementation Committee created a community survey regarding the nine elements included in the Comprehensive Plan. Using the survey results, along with information regarding natural features, past population and housing data, and infrastructure, the Committee developed the vision, goals, and strategies expressed within this Plan to determine the Potential 20-Year Land Use Map, as well as the implementation actions the County will undertake throughout the 20-year planning period.

In some instances, a single goal applies to more than one element of the Plan and is restated in multiple chapters. Therefore, when preparing any amendments to this Comprehensive Plan or its individual elements, the Planning, Resources, Agriculture, and Extension Committee should

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undertake an overall review of all nine elements, along with their identified goals, objectives, policies, and programs, in order to ensure consistency within and between elements before any amendment that might affect more than one element is approved.

IMPLEMENTATION SCHEDULE This implementation schedule for the activities in this Plan are shown in Table 9-1. These activities are identified as “ongoing,” “immediate,” “mid-term,” and “long-term.” “Ongoing” indicates the activity has already been underway and will continue to be carried out as necessary; “Immediate” indicates the activity should be initiated before the end of 2010 if possible; “Mid-Term” generally indicates the activity should be initiated sometime before 2015; and “Long-Term” generally indicates the activity should be initiated some time toward the latter half of the 20-year planning period. Detailed step-by-step instructions on how to accomplish each of the activities are beyond the scope of this Plan. It is recommended, however, that officials develop their own “plan of action” to ensure the activities listed above have a chance to be accomplished.

Table 9-1 – Sheboygan County Implementation Activities Natural Resources Goals • Protect, enhance, and restore groundwater quality and quantity in Sheboygan County. • Identify, protect, and restore valuable surface water resources in Sheboygan County. • Protect and enhance Lake Michigan and its coastal resources. • Manage and protect floodplains in Sheboygan County. • Identify, protect, and restore wetlands in Sheboygan County. • Improve and protect air quality in Sheboygan County. • Protect, enhance, and restore land resources. • Encourage the wise management of aggregate (sand, gravel, and crushed stone) resource areas in Sheboygan County. • Identify and protect Sheboygan County’s native biological resources. • Preserve and enhance the systems of parks, trails, and open space within Sheboygan County. KEY GROUPS FOR LAUNCH ACTIVITY IMPLEMENTATION DATE SGIC Natural and Culture 1- Work with appropriate partners to complete a study to determine the Resources Subcommitee, Mid-Term County’s groundwater recharge areas. local nonprofit organizations SGIC Natural and Culture Resources Subcommitee, 2- Develop a program to protect the groundwater recharge areas. Mid-Term local nonprofit organizations 3- Promote groundwater infiltration in areas associated with natural Local municipalities, groundwater recharge by minimizing impermeable areas and promoting Mid-Term County Planning wetland creations, enhancements, and restorations. 4- Continue to monitor private drinking water supplies through voluntary UW-Extension, Local testing by the UW-Extension, and where feasible look to have a water municipalities, UW- Ongoing testing lab at UW-Sheboygan. Sheboygan 5- Continue to monitor public drinking water supplies, in accordance with WDNR, Local Ongoing state and federal laws. municipalities 6- Continue to identify unused wells and then promote the proper County Land and Water Ongoing abandonment of wells through the County Land and Water Conservation Conservation, WDNR

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Department’s abandoned well program. 7- Support land use patterns and water quality control facilities, programs, and operational improvements, including non-point pollution controls and Local municipalities, Ongoing sewage and stormwater management systems, to protect groundwater WDNR quality. 8- Continue to implement the County Sanitary Regulations, Chapter 70 of the Sheboygan County Code of Ordinances, which includes regulation of County Planning Ongoing private onsite waste treatment systems (POWTS). SGIC Natural and Culture Resources Subcommitee, 9- Promote groundwater supply planning at a regional level. Immediate local nonprofit organizations, WDNR 10- Provide technical support and assistance to partners on watershed WDNR Ongoing protection. WDNR, County Planning, 11- Utilize plans from partnering agencies and organizations in the Local Municipalities, Ongoing County’s watershed planning efforts. County Land and Water Conservation 12- Continue to implement the Sheboygan County Shoreland-Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances. County Planning Ongoing

13- Continue to provide the Water Quality Improvement Program (the County Land and Water Buffer Strip Program), that create buffers along Sheboygan County’s Ongoing Conservation waterways. 14- Continue to implement the Animal Waste Storage Facility Code, County Land and Water Ongoing Chapter 77 of the Sheboygan County Code of Ordinances. Conservation 15- Continue to implement the Erosion Control and Stormwater County Land and Water Management regulations, Chapter 75 of the Sheboygan County Code of Ongoing Conservation Ordinances. County Planning, County 16- Develop and maintain stormwater management plans at County Land and Water Ongoing facilities. Conservation 17- Seek to work with and support municipalities on the management of County Planning, WDNR, Immediate stormwater structures. Local municipalities County Planning, WDNR, 18- Encourage a watershed approach to stormwater management. Immediate BLRPC 19- Work towards compliance with State and Federal stormwater County Planning, WDNR, Immediate management requirements. Local municipalities County Planning, WDNR, Local municipalities, 20- Encourage partnerships for stormwater management. Ongoing Sheboygan Waters, other local nonprofits County Planning, WDNR, 21- Continue education and outreach to inform the public about stormwater Local municipalities, Ongoing management projects. Sheboygan Waters 22- Promote stormwater Best Management Practices, including rain barrels, County Planning, WDNR, rain gardens, green roofs, porous pavement, infiltration basins, etc. in new Local municipalities, Mid-Term and existing development areas. Nonprofits

County Planning, WDNR, 23- Apply for stormwater management and education grants. Local municipalities, Mid-Term Nonprofits 24- Develop and continue programs that address agricultural runoff, County Land and Water Ongoing farming practices, and shoreland development as it relates to water quality Conservation, County

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impacts to surface waters in Sheboygan County. Planning 25- Limit the amount of salt used on County highways, to reduce salt County Highway Mid-Term runoff into surface waters. Department County Planning, WDNR, 26- Collaborate with the WDNR and others to develop and distribute Local municipalities, educational materials to the public regarding non-point and point source Ongoing Sheboygan Waters, other pollution, including the continuation of the Clean Water Partnership. local nonprofits 27- Support the continuation of the County’s Waste Pharmaceuticals and County Planning Ongoing Hazardous Waste Collection Programs. 28- Continue to implement the County Sanitary Regulations, Chapter 70 of the Sheboygan County Code of Ordinances, which includes regulation of County Planning Ongoing private onsite waste treatment systems (POWTS). 29- Support the acquisition and restoration of the Amsterdam Dunes County Planning, Friends Ongoing property. of Amsterdam Dunes County Planning, local 30- Support the protection and restoration of coastal wetland areas. Ongoing nonprofits, WDNR, EPA 31- Inventory and preserve environmental corridors in the “coastal County Planning Mid-Term corridor.” 32- Inventory and protect coastal areas that conserve the Lake Michigan County Planning, local flyway, the WDNR’s Land Legacy Areas, and the natural communities of Mid-Term nonprofits, WDNR beaches and dunes. County Planning, Local 33- Encourage projects that provide public access to Lake Michigan. Ongoing municipalities 34- Provide educational opportunities for the public to gain a better County Planning, local understanding of their role in protecting Lake Michigan and measures to Mid-Term nonprofits, WDNR mitigate human impacts on the resource. 35- Continue to provide technical assistance to landowners who build along County Planning, County the Lake Michigan coast, including educating landowners on the proper Land and Water Ongoing siting of septic systems, vegetative management of bluffs, and proper Conservation, WDNR stormwater management to reduce impact on slope stability. Area of Concern 36- Support restoration and delisting of the Sheboygan River Area of Municipalities, EPA, Ongoing Concern, as defined by the International Joint Commission (IJC). Citizen’s Committee 37- Support programs that address runoff, farming practices, public works County Land and Water projects, construction, and shoreland development as it relates to water Conservation, County Ongoing quality impacts to Lake Michigan. Planning 38- Continue to implement the Sheboygan County Shoreland-Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances in County Planning Ongoing coastal areas, including appropriate setbacks in bluff and dune areas. 39- Provide technical resources to towns, homeowners, businesses, and institutions and raise awareness of the risks of floodplain development and County Planning, FEMA Ongoing the availability of mitigation and disaster assistance programs. 40- Continue implement the Sheboygan County Floodplain Ordinance, County Planning, FEMA Ongoing Chapter 73 of the Sheboygan County Code of Ordinances. 41- Develop a public educational program and distribute these materials to County Planning, FEMA Mid-Term the public regarding floodplain management. 42- Inform local insurance agents, real estate agents, builders, and lenders County Planning Ongoing on who to contact regarding floodplain issues. 43- Eliminate repetitive loss properties in Sheboygan County. FEMA Ongoing 44- Update the floodplain maps periodically. County Planning, FEMA Ongoing 45- Maintain an inventory of the County’s wetlands, including those WDNR, County Planning Ongoing created for mitigation purposes. 46- Continue to implement the Sheboygan County Shoreland-Wetland County Planning Ongoing Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances.

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47- Consider the development of new wetland setback requirements County Planning, WDNR Long-Term adjacent to all wetlands. County Planning, WDNR, 48- Encourage development away from wetlands. Ongoing Local municipalities 49- Collaborate and cooperate with the NRCS, the WDNR, and the U.S. WDNR, NRCS, County Fish and Wildlife Service to ensure classification and restoration of Long-Term Planning wetlands. County Planning, Nonmotorized 50- Encourage development designs that promote walking, bicycling, and Transportation Ongoing transit options. Nonprofit, Local municipalities County Planning, Nonmotorized 51- Continue to seek funding for the maintenance of non-motorized Transportation Ongoing transportation facilities. Nonprofit, Local municipalities 52- Continue to cooperate with the EPA and WDNR to improve and protect EPA, WDNR, local Ongoing air quality. businesses EPA, WDNR, local 53- Encourage municipalities to create Climate Action Plans. Long-Term municipalities 54- Conserve forestlands that are susceptible to development, have the potential to connect to other parcels of forestland, have public importance, WDNR, local nonprofits Ongoing and provide critical ecological functions. 55- Work with the appropriate individuals and organizations to prohibit development on critical forestland by acquiring donated conservation WDNR, local nonprofits Mid-Term easements, purchase of development rights or transfer of development rights on those lands. 56- Develop a fund for protection and management of high priority WDNR, local nonprofits Mid-Term forestland, where reasonable. 57- Protect lands identified as Wisconsin Forest Legacy Areas and areas WDNR, local nonprofits Mid-Term identified in the Land Legacy Report, if they fall within Sheboygan County. 58- Work with Bay Lake Regional Planning Commission to develop an County Planning, BLRPC Mid-Term environmental corridors program. 59- Classify and prioritize environmental corridors in Sheboygan County. County Planning, BLRPC Mid-Term 60- Research and become aware of the “Sustain, Reconnect, and Grow the County Planning, BLRPC Mid-Term Environmental Corridors Program, (SRGE).” Local nonprofits, 61- Work with local organizations and land trusts to preserve including land trusts, Mid-Term environmental corridors. County Planning, BLRPC Local nonprofits, 62- Combine public and private efforts to restore riparian stream buffers for including land trusts, Long-Term water quality and wildlife. County Land and Water Conservation, WDNR 63- Explore the use of overlay districts in the Shoreland Zone with setbacks for lakes, streams, and wetlands requiring additional care and proof that County Planning Mid-Term development will not have a negative effect on these resources. 64- Continue to implement the Sheboygan County Shoreland and Shoreland-Wetland Ordinance, Chapter 72 of the Sheboygan County Code County Planning Ongoing of Ordinances. 65- Protect the wooded riparian areas, by exploring the modification of existing County ordinances to increase the minimum distance for brush and County Planning Mid-Term tree removal from riparian areas.

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SGIC Natural Resources 66- Identify and compile a listing of the geological features in the County. Mid-Term Subcommittee 67- Provide educational information to local municipalities about view and County Planning Mid-Term vista ordinances and about preservation of these natural features. 68- Continue to implement the Sheboygan County Nonmetallic Mining County Land and Water Ongoing Ordinance, Chapter 78 of the Sheboygan County Code of Ordinances. Conservation County Land and Water 69- Ensure mining sites follow their reclamation plans. Conservation, Local Ongoing municipalities 70- Refer and support resource priorities and plans of Wisconsin and conservation associations, such as Land Legacy Reports, Lake Michigan County Land and Water Shorelands Alliance, Sheboygan River Basin Partnership, Glacial Lakes Conservation, County Ongoing Conservancy, and the Nature Conservancy. Planning, WDNR

Local municipalities, 71- Promote and encourage landscaping of native species on public and UW-Extension Master Ongoing private lands in Sheboygan County. Gardiners 72- Continue to provide the County tree/plant sale to encourage the County Land and Water planting of native species. Ongoing Conservation

73- Develop programs to educate, control, and reduce the spread of UW-Extension Ongoing invasive species on public and private lands in Sheboygan County. UW-Extension, USDA, 74- Continue to inventory areas with invasive species. Ongoing WDNR, Local nonprofits 75- Develop a repository for invasive species data. UW-Extension Mid-Term County Land and Water 76- Support the creation of plans to address any major invasive species Conservation, County infestations, including the Emerald Ash Borer, zebra mussels, Japanese Ongoing Planning, Local Knotweed, etc. nonprofits County Land and Water 77- Work to eliminate invasive species from within the County, where Conservation, County feasible. Partner with local organizations and governmental agencies, Ongoing Planning, WDNR, Local where available. nonprofits 78- Develop a public-informational program on invasive species, including UW-Extension Mid-Term the prevention of and removal of the species. WDNR, US Fish and 79- Protect and enhance environmentally sensitive habitats. Ongoing Wildlife Service 80- Gather and share information on critical habitats and species with the WDNR, US Fish and Ongoing Bureau of Endangered Resources and other interested parties. Wildlife Service, citizens County Land and Water 81- Work with organizations to apply for funding to enhance and preserve Conservation, County Ongoing the sensitive habitat areas and species. Planning, WDNR, Local nonprofits SGIC Natural Resource 82- Conduct an inventory of areas that would support a natural corridor Subcommittee, County Long-Term between major public land holdings. Planning 83- Continue cooperation in the management of the Sheboygan Marsh Park County Planning, WDNR Ongoing with the WDNR. 84- Identify, protect, and preserve the County’s significant natural scenic SGIC Natural Resource and open space areas for the enjoyment of residents and visitors and for the Subcommittee, WNDR, Mid-Term present and future generations. Local nonprofits 85- Ensure future County outdoor recreation and open space plans are County Planning, WDNR, Ongoing adopted by the County Board of Supervisors and certified by the WDNR, Local municipalities

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so the County is eligible to receive available State and Federal outdoor recreation grants. 86- Work with local municipalities to ensure the outdoor recreation and County Planning, Local Ongoing open space plan are updated. municipalities 87- Continue to fund the County Stewardship Program for preservation and County Board, County Ongoing acquisition of parks and open space. Planning 88- Support private conservation organizations, including shooting clubs, County Planning Ongoing fishing clubs, conservation clubs, etc.

Agricultural Resources Goals • Identify Sheboygan County’s productive and viable agricultural land. • Encourage agri-businesses and agricultural activities as viable economic industries in the County. • Sheboygan County offers assistance and resources for the preservation and protection of agricultural lands to ensure farming remains viable in Sheboygan County. • Protect farms and farming in Sheboygan County. • Protect soil and water resources through utilizing agricultural best management practices (BMPs) and other agencies. • Streamline the regulatory process and provide educational opportunities. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION SGIC Agricultural 1- Develop and adopt Site Assessment criteria for the Sheboygan County’s Subcommittee, Farmers, Immediate Land Evaluation and Site Assessment (LESA) score. local nonprofits, local municipalities SGIC Agricultural 2- Hold public informational meetings to share the LESA scores with local Subcommittee, Farmers, Mid-Term municipalities. local nonprofits, local municipalities SGIC Agricultural 3- Explore the development of a program to promote an agricultural Subcommittee, Farmers, economic cluster of farming operations and appropriate agri-businesses on Mid-Term local nonprofits, local lands designated for agricultural use on the County Future Land Use Map. municipalities 4- Support a program to market and link Sheboygan County farms and SGIC Agricultural agricultural products, including organic products, to restaurants and grocery Subcommittee, Farm Long-Term stores in Sheboygan County and surrounding areas. Organizations SGIC Agricultural 5- Develop a local or regional ‘brand’ for agricultural products. Subcommittee, Farm Long-Term Organizations 6- Work with the UW-Extension to create a resource log of existing SGIC Agricultural programs available to support beginning farmers and ensure that this Subcommittee, UW- Immediate resource is effectively communicated to existing and potential farmers so Extension that people are aware of available programs. 7- Continue to support the UW-Extension, local high schools, and LTC to promote agribusiness education programs, and encourage young and UW-Extension, Schools Mid-Term beginning farmers to attend classes. 8- Work with the UW-Extension to promote the economic impact of UW-Extension Ongoing agriculture in Sheboygan County. 9- Continue to support and provide a periodic economic analysis for UW-Extension, UW- Ongoing agriculture in Sheboygan County, following the agriculture census. Schools

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10- Use State and Federal grants to promote agriculture and associated USDA, DATCP, farmers Mid-Term agricultural industries in the County. 11- Support economic initiatives to ensure farming remains viable in Sheboygan County, including funding programs, agri-tourism, and direct USDA, DATCP, farmers Mid-Term marketing of farm products. 12- Support Green Tier and agricultural businesses who participate in WDNR, Agricultural Mid-Term Green Tier. businesses 13- Educate local municipalities on the importance of agri-businesses and Agricultural businesses, Mid-Term farmers reliance on these businesses. Local municipalities SGIC Agriculture 14- Protection of farmlands that have the highest LESA scores shall be Subcommittee, WDNR, Mid-Term given highest priority for preservation. Local nonprofits 15- Encourage more compact, dense development within sewer service Local municipalities Ongoing areas to minimize the development of farmland for urban uses. 16- Utilize grants and funding sources, where applicable, to preserve and USDA, DATCP, farmers Ongoing protect agricultural lands. 17- Continue to support the County’s Stewardship Fund. County Board Ongoing 18- Update the Sheboygan County Farmland Preservation Plan based on the LESA analysis and any revisions made to the Wisconsin Farmland County Planning, DATCP Immediate Preservation Program (FPP) by the Wisconsin Working Lands Initiative legislation. 19- Minimize the potential for conflicts between rural landowners. Local municipalities Ongoing 20- Educate citizens, landowners, and elected officials by providing UW-Extension, Local Ongoing materials and links on “Wisconsin’s Right to Farm” Law. municipalities 21- Educate and inform municipalities of the various types of farming UW-Extension, Local Ongoing operations, and how these farms can be better supported. municipalities 22- Protect agricultural infrastructure in Sheboygan County to support farm Local municipalities Mid-Term operations. 23- Support programs that help to keep productive farmland and ranchland Local farmers Ongoing in agricultural uses, such as the Farm and Ranch Land Protection Program. 24- Study and consider developing a County purchase of development SGIC Agriculture rights (PDR) program, transfer of development rights (TDR) program, or a Subcommittee, local Mid-Term County agricultural easement program to protect parcels identified as high nonprofits priority by the LESA analysis. 25- Continue to work with the UW-Extension and local schools to support youth farming related programs, as well as to develop an educational UW-Extension, local Ongoing program that outlines grants and loans available through Federal and State schools agencies for youth programs, including 4-H Clubs and FFA. 26- Work with the UW-Extension to provide information to farmers on UW-Extension Mid-Term succession planning. Support mentor programs to assist beginning farmers. 27- Work with the UW-Extension and local organizations to develop and distribute a voluntary inventory of available farmland and agricultural- UW-Extension Mid-Term related assets. Sheboygan County, Local 28- Encourage revenue-sharing grants for roads and bridges. Immediate municipalities 29- Develop an inventory and rating system for local roads to identify those County Highways, Local most likely to be used by farm operators to create a safe environment for Long-Term municipalities travel between fields and everyday activities. SGIC Agriculture 30- Develop methods to preserve the agricultural heritage of the County. Long-Term Subcommittee SGIC Agriculture 31- Encourage identification and preservation of historic structures. Subcommittee & Natural Long-Term Resources Subcommittee

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SGIC Agriculture 32- Compile a list of the century farms in Sheboygan County. Mid-Term Subcommittee 33- Develop an educational program and distribute educational materials regarding farming techniques that promote soil conservation such as no till and zone tilling farming, rotational grazing, contour stripping, grass UW-Extension Mid-Term waterways, terracing, crop rotation, and nutrient management through soil sampling. This educational program focus should include local governments and individual farmers. 34- Work with UW-Discovery farms to provide information on best UW-Discovery Farms, Ongoing management practices and its research. Farmers 35- Work with LTC agricultural department on the Best Management LTC, Farmers Ongoing Practices. 36- Provide support, information, and application assistance for Federal Land and Water and State programs, including County cost-sharing, to implement farming Immediate Conservation practices that promote soil conservation and water quality protection. 37- Continue to implement the County’s Animal Waste Management Land and Water Ongoing Ordinance, Chapter 77 of Sheboygan County’s Code of Ordinances. Conservation 38- Continue to support the County’s Water Quality Improvement Program Land and Water (Buffer Strips), including County cost-sharing, especially in agricultural Ongoing Conservation areas along waterways. 39- Continue to implement the County’s Erosion Control and Stromwater Land and Water Management Ordinance, Chapter 75 of Sheboygan County’s Code of Ongoing Conservation Ordinances. 40- Promote the benefits of reducing sediment and phosphorus loadings to Land and Water Ongoing surface waters. Conservation 41- Reduce soil erosion, using the objectives from the Sheboygan County Land and Water Land and Water Resource Management Plan as a starting point to reduce Ongoing Conservation the erosion. 42- The Land and Water Conservation Department shall continue to Land and Water provide technical service and conservation planning assistance to Ongoing Conservation landowners and units of government. 43- The Land and Water Conservation Department shall continue to provide technical assistance to the US Department of Agricultural and the Land and Water Natural Resources Conservation Service for the Conservation Reserve Ongoing Conservation Enhancement Program, Environmental Quality Incentive Program, and others. 44- Apply for grants that will help implement the programs in the Land and Water Ongoing Sheboygan County Land and Water Resource Management Plan. Conservation 45- Continue to provide staff to facilitate the implementation of the Land and Water Ongoing Sheboygan County Land and Water Resource Management Plan. Conservation 46- Work with each Town to develop individual fact sheets to be given to land owners at the time of permit issuance that include the process at the UW-Extension Mid-Term local level so landowners know what to expect. 47- Develop specific training for elected officials on current issues related UW-Extension Mid-Term to agriculture and land use law. 48- Support local “forums” for elected officials to provide education on UW-Extension, County Mid-Term agriculture and land use issues. Planning 49- Work with neighboring municipalities, including neighboring counties, Local municipalities, Long-Term to have consistent standards and ordinances, where applicable. County Planning

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Cultural Resources Goals • Identify and inventory areas of cultural, archeological, architectural, and historical significance. • Support public engagement to help the local cultural, historical, archaeological, and architectural resources remain relevant to contemporary society. • Protect and preserve the historical, cultural, archaeological, and architectural resources of the County, both past and present. • Promote and support the local artistic culture. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION SGIC Cultural Resources 1- Partner with local preservation groups to help to inventory the cultural, Subcommittee, Local Immediate archaeological, architectural, and historical sites in Sheboygan County. historical groups SGIC Cultural Resources 2- Map the cultural, archaeological, architectural, and historical sites on a Subcommittee, Local Immediate Countywide level. historical groups 3- The Sheboygan County Museum and other area organizations should Sheboygan County continue to develop and host locally focused programs and events to Ongoing Museum highlight cultural resources in the County. SGIC Cultural Resources 4- Encourage and explore funding to preserve the historical, cultural, Subcommittee, Local Ongoing archaeological, and architectural resources of the County. historical groups SGIC Cultural Resources 5- Partner with local preservation groups to acquire cultural, Subcommittee, Local Mid-Term archaeological, architectural, and historical sites in Sheboygan County. historical groups SGIC Cultural Resources Subcommittee, Local 6- Encourage the integration of local art in public places. historical groups, John Ongoing Michael Kohler Arts Center 7- Identify and promote the local artistic resources (e.g. performing arts SGIC Cultural Resources Immediate venues, galleries, museums, sculpture gardens, etc. Subcommittee SGIC Cultural Resources 8- Encourage the continued funding for arts programs in the local schools. Subcommittee, Local Immediate historical groups 9- Encourage continuation of private art education programs, including John Michael Kohler Arts Ongoing those offered by the John Michael Kohler Arts Center. Center, private donors SGIC Cultural Resources 10- Facilitate community vision sessions to ensure the important aspects of Subcommittee, Local Mid-Term a community’s character are addressed. municipalities

9-13 Sheboygan County Comprehensive Plan Adopted

Housing Goals • Promote a range of safe and affordable housing choices for persons of all income levels and age groups in the County. • Promote the addition of an adequate number of housing units to meet housing demand through 2030. • Promote the maintenance and improvement of existing housing stock as a continuing source of affordable housing. • Encourage development in areas that provide adequate infrastructure. • Promote a range of housing and development choices that meet the needs and preferences of Sheboygan County residents. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION 1- Develop model Planned Unit Development (PUD) and accessory apartment ordinances, for use by local governments, which are designed to County Planning Mid-Term increase the number of affordable housing units. 2- Promote higher density development to create more affordable housing Local municipalities Mid-Term options. 3- Promote reasonable minimum housing square footage requirements. Local municipalities Mid-Term 4- Continue to enforce requirements in the Sheboygan County Subdivision Ordinance and in the Sanitary Ordinance regarding the disposal of solid County Planning Ongoing waste. 5- Continue to follow laws and regulations regarding housing safety and Builders and building Ongoing construction. inspectors 6- Continue cooperative efforts between the Sheboygan County Health Sheboygan County Health Department and local governments to enforce State public health Statutes Department, Local Ongoing and County ordinances concerning dilapidated, unsafe, or unsanitary municipalities housing that poses a human health hazard. Wisconsin Focus on 7- Encourage energy efficiency in housing units, by supporting the State’s Energy, Local Immediate Focus on Energy Program. homeowners 8- Work with independent funding sources to increase energy efficiency in the County’s housing units (e.g. condo associations and apartment Local homeowners Mid-Term complexes). County Planning, 9- Provide information on universal design (designed for all physical American Disabilities Mid-Term abilities) in housing and subdivision construction. Association Local nonprofit and for- 10- Support efforts by appropriate government, profit, and non-profit profit organizations, organizations to provide needed assistance for elderly and disabled Immediate Aging and Disability residents who wish to stay in their own homes. Resource Center Local nonprofit and for- 11- Continue to provide or create assistance programs for home profit organizations, Ongoing maintenance and in-home health care services. Aging and Disability Resource Center 12- Continue the Meals on Wheels Program, so people can stay in their Sheboygan Meals on Ongoing homes and receive meals. Wheels 13- As needed, work with the local housing authorities and other agencies Local housing authorities Ongoing on the availability of housing assistance programs. 14- Partner with the appropriate organizations to study and educate local Local housing government officials and staff about the use and availability of Community Ongoing authorities/agencies Development Block Grant (CDBG) funds.

9-14 Sheboygan County Comprehensive Plan Adopted

15- Assist, where possible, in the application process for CDBG funds from Local housing the Wisconsin Department of Commerce and the U.S. Department of Ongoing authorities/agencies Housing and Urban Development. 16- Assist in the distribution of educational materials regarding Federal and Local housing Ongoing State fair housing laws. authorities/agencies 17- Inform and educate local officials about new housing unit projections County Planning Mid-Term and programs available to them. 18- Consider creating an umbrella agency to deal with countywide housing SGIC Housing Mid-Term issues at a centralized location. Subcommittee 19- Support the use of tax incremental financing (TIF) districts to Local municipalities Long-Term encourage redevelopment of under-used and blighted areas for housing. 20- Develop and provide technical assistance for model property County and City Planning maintenance regulations and lead-safe standards so local governments can Mid-Term Departments adopt and enforce such regulations.

21- Work with existing housing agencies to identify programs and potential Local housing funding sources for new programs to assist homeowners with making authorities/agencies, Immediate needed repairs, including improvements to meet State and Federal lead-safe Local homeowners standards.

22- In communities with sewer service areas and other urban services, encourage comprehensive plans and ordinances that support the provision Local municipalities, Immediate of a full range of structure types and sizes, including single-family, two- County Planning family, and multi-family dwellings, at appropriate densities. 23- In communities without sewer service areas and other urban services, Local municipalities, encourage comprehensive plans and ordinances that support the provision Immediate County Planning of housing types and densities appropriate for the community. 24- Continue to use the County’s Subdivision Ordinance to review new County Planning Ongoing development in unincorporated areas. 25- Continue to enforce requirements relating to development in floodplains through administration of the County Shoreland-Wetland and County Planning Ongoing Floodplain Ordinance. 26- Support local government comprehensive plans and ordinances including zoning ordinances, land division ordinances, and building codes Local municipalities, that support the provision of a full range of lot sizes and structure types and Mid-Term County Planning sizes, depending on location (e.g. “in-law zoning” and /or “caregiver suites”). Local municipalities, 27- Provide technical assistance to the rural areas of the County relating to County Highway Mid-Term residential development at appropriate densities and roadway safety. Department, County Planning 28- Promote higher density development to maximize available land use County Planning Immediate (for example: for the preservation of forestry and agricultural lands). Local municipalities, 29- Continue to research housing trends and provide information to local governments on innovative ways to accommodate a variety of housing County Planning Ongoing types and sizes that are appropriate to the services available in various communities. 30- Provide technical assistance to communities seeking to provide County Planning Ongoing conservation-based and other innovative forms of housing. 31- Encourage the preservation of resources, including land and natural Local municipalities, Mid-Term resources, in housing developments. County Planning 32- Encourage the use of flexible zoning techniques by local governments Local municipalities, to accommodate a variety of housing options, including “green” Immediate County Planning developments.

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33- Provide education and information on new building materials and new Local municipalities, Mid-Term development types to local officials. developers

Economic Development Goals • Identify and encourage diverse and sustainable business and job development. • Promote an adequate number of jobs accessible to Sheboygan County residents to serve the County’s estimated projected population for 2030 of 133,00 persons. • Promote an adequate supply of workers to meet the employment needs of businesses located in the Coty through 2030 and beyond. • Promote businesses and industries to be good stewards of land, air, water, and energy resources. • Broaden the County’s tax base and strengthen its economy and employment base through the retention and expansion of existing businesses, and the attraction and development of new diverse businesses. • Promote tourism in the County by capitalizing on tourism amenities, including historical, cultural, archaeological, architectural, recreational, and natural resources. • Allow small scale economic development through home-based business. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION SGIC Economic 1- Identify processes to encourage cooperation and coordination rather than Development competition among Sheboygan County communities when locating large Subcommittee, Sheb. Immediate economic development projects. County Economic Development Corporation Sheb. County Economic 2- Explore the possibility of intercommunity support as a way to encourage Development Mid-Term economic development cooperation between units of government. Corporation, Local municipalities

3- Continue to work with the UW-Extension and local schools to support

youth farming related programs, as well as to develop an educational UW-Extension, local Ongoing program that outlines grants and loans available through Federal and State schools agencies for youth programs, including 4-H Clubs and FFA.

4- Work with the UW-Extension to provide information to farmers on UW-Extension Mid-Term succession planning. 5- Support economic initiatives to ensure farming remains viable in Sheboygan County, including funding programs, agri-tourism, and direct USDA, DATCP, farmers Mid-Term marketing of farm products. 6- Support green tier and agricultural businesses, which participate in green WDNR, Agricultural Mid-Term tier. businesses 7- Promote and encourage programs that help current businesses remain DATCP, Agricultural Mid-Term viable, as well as, attracting new businesses to Sheboygan County. business Various County Chamber 8- Work with the Chambers to see what services or programs are most vital of Commerce, Sheb. Ongoing to the business community. County Economic Development Corporation 9- Continue to administer the Sheboygan County Revolving Loan Fund and the Community Development Block Grants to create employment County Revolving Loan Ongoing opportunities and provide a means to finance new and existing businesses Committee in the County. 10- Study the use of State and Federal bio-energy grants to promote Sheb. County Economic Mid-Term

9-16 Sheboygan County Comprehensive Plan Adopted

agriculture and associated agricultural industries in the County. Development Corporation 11- Develop and distribute educational materials regarding various funding Sheb. County Economic and incentive opportunities available for businesses located in Sheboygan Immediate Development Corporation County or wishing to relocate to the County. 12- Study the development of employer health care purchasing tools in Sheboygan County Mid-Term Sheboygan County; this may include health care purchasing pools. Human Resources Sheboygan County 13- Promote the retention of manufacturing, agricultural, finance and Chamber of Commerce, insurance, health care, professional and technical services, tourism, and Ongoing Sheb. County Economic other service sector jobs in Sheboygan County. Development Corporation 14- Continue the Chamber’s business retention survey, and be responsive Sheboygan County Ongoing to the results. Chamber of Commerce Schools, LTC, UW- 15- Continue a high level of education in order to employees to meet the Sheboygan, Lakeland Ongoing diverse employment opportunities. College 16- Develop a workforce response team that will help employees get in a Sheb. County Economic Immediate position to find employment. Development Corporation 17- Continue (or Seek) partnerships with SEEK, Manpower, the Workforce Development Center, the Job Center, United Way, and the Chamber to Local employment centers Ongoing advertise and help employees gain employment opportunities in Sheboygan. 18- Continue the support of the local colleges and universities (LTC, UW- LTC, UW-Sheboygan, Sheboygan, and Lakeland College) in providing retraining and continuing Lakeland College, Local Ongoing educational opportunities for employees. municipalities 19- Develop a plan to fully engage and involve young people/professionals Sheboygan County Ongoing in all aspects of the community and in civic matters. Chamber of Commerce Sheb. County Economic 20- Partner with the appropriate organizations to study and educate local Development government officials and staff about the use and availability of Community Mid-Term Corporation, Local Development Block Grant (CDBG) funds. municipalities 21- Support the use of tax incremental financing (TIF) districts to encourage redevelopment of under-used and blighted areas for a mix of Local municipalities Ongoing businesses and affordable housing. This will encourage people living where they work. 22- Continue operation of the Sheboygan Transit buses and when needed Sheboygan Transit Ongoing look to expand. 23- Encourage the concept of the “complete street” in urban and urban Sheboygan County, Local fringe areas. Complete street’s concepts include sidewalks, paved Ongoing municipalities shoulders, bike lanes, roads, etc. 24- Provide educational and informational opportunities on new County Planning, UW- Immediate technologies and techniques to provide cost-effective energy. Extension, LTC 25- Explore the use of alternative energy sources, in order to reduce Sheboygan County Ongoing emissions to the air, land, and water. businesses UW-Extension, County 26- Encourage the use of State and Federal energy grants to promote the Planning, Local Ongoing conservation of and the use of alternative energy in the County. businesses 27- Work to utilize alternative energy sources that would not pose an UW-Extension, Local Mid-Term adverse impact to the County’s natural resources. businesses 28- Continue Chamber programs, such as retention calls, in order to help Sheboygan County Ongoing identify economic development opportunities. Chamber of Commerce Sheb. County Economic 29- Develop economic development programs that enhance our relevant Development Immediate business sectors. Corporation, Sheboygan County

9-17 Sheboygan County Comprehensive Plan Adopted

Chamber of Commerce Sheb. County Economic 30- Support the creation of a business incubator program(s) and Development Immediate facility(ies). Corporation, Sheboygan County Sheb. County Economic Development 31- Support and initiate county industrial and commercial development. Immediate Corporation, Sheboygan County Sheboygan County Chamber of Commerce, 32- Continue participation in regional organizations, such as North East Sheb. County Economic Ongoing Wisconsin Regional Economic Planner (NEWREP) and the New North. Development Corporation, Sheboygan County Sheboygan County Chamber of Commerce, 33- Promote the use of commercial listing systems for businesses. Immediate Sheb. County Economic Development Corporation 34- Work with the County and other private sector groups to develop new businesses and retail stores in areas properly zoned or in designated County Planning, Local Mid-Term commercial areas shown on the local municipalities’ Future Land Use municipalities Plans. 35- Encourage economic development in areas that would be compatible County Planning, Local Immediate with adjacent land uses and easily accessible. municipalities 36- Promote the non-motorized facilities in the County. County Planning Ongoing Sheboygan County’s 37- Promote the tourism value of the local businesses. Various Chambers of Ongoing Commerce Sheboygan County’s 38- Support Sheboygan County’s Chambers of Commerce tourism Various Chambers of Ongoing programs. Commerce Local municipalities, 39- Promote a cooperative effort in promoting tourism (e.g. programs, Sheboygan County’s Immediate activities, facilities) in Sheboygan County. Various Chambers of Commerce 40- Continue to link Sheboygan County’s website with local tourism Sheboygan County’s Ongoing websites. Information Systems Sheboygan County 41- Continually update and expand comprehensive tourism and recreation Chamber of Commerce, Ongoing maps (printed and online) of Sheboygan County. County Planning Sheboygan County 42- Provide a map of the cultural, archaeological, architectural, and Chamber of Commerce, Mid-Term historical sites on a county-wide level. County Planning 43- Encourage tourist and residents to attend the Sheboygan County Sheboygan County Ongoing Museum and other area historical and cultural sites or business. Chamber of Commerce Various local art 44- Encourage the integration of local art in public places. Ongoing organizations SGIC Cultural Resources Subcommittee, Local 45- Identify and promote the local artistic resources (e.g. galleries, artistic groups, John Ongoing museums, sculpture gardens, performing arts, etc.) Michael Kohler Arts Center 46- Encourage less intrusive forms of transportation in environmentally County Planning Ongoing

9-18 Sheboygan County Comprehensive Plan Adopted

friendly areas.

47- Promote mapping and distribution of brochures of Sheboygan County’s County Planning Immediate non-motorized facilities and related businesses. 48- Encourage the least amount of disturbance in areas that are high in County Planning, Local Ongoing natural beauty or have unique biodiversity. municipalities 49- Develop supportive tools and regulations, as needed. County Planning Mid-Term

Transportation Goals • Provide an integrated, efficient, and economical transportation system that affords access, mobility, convenience, and safety and that meets the needs of all citizens, including transit-dependent residents, persons with disabilities, and the elderly. • Develop a safe and efficient multi-modal transportation system that serves all users. • Improve transportation infrastructure and land use design to support a range of transportation choices for all citizens that serves the anticipated land use development pattern set forth in Sheboygan County’s Potential Future Land Use Map. • Minimize the impact of new transportation improvements on existing development and the community’s natural, agricultural, historical, architectural, and archaeological resources. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION 1- Ensure consistency among regional, County, and local land use and County Planning, County transportation plans so that the street and highway network, transit services, Highway Department, Ongoing and bicycle and pedestrian facilities are appropriately sized and located to WisDOT serve County residents. 2- Continue to monitor, plan for, and fund the operation of elderly and Sheboygan Transit, RTC, Ongoing disabled transportation services and expand services as necessary. County Planning, 3- Actively participate with the State of Wisconsin on transportation County Highway Ongoing projects affecting the County. Department, WisDOT County Highway 4- Support the recommendations in the WisDOT’s Connections 2030 Plan. Department, WisDOT, Immediate County Planning 5- Consider each transportation element developed under the Regional County Highway Transportation System Plan when programming and budgeting for Ongoing Department, MPO transportation improvements. 6- The County shall maintain and update its five-year Capital Improvements Program, with all necessary inclusions for transportation and County Finance Ongoing other public utilities and facilities. 7- Study the needs and feasibility of additional park and ride locations along the State Highway 57 corridor, and implement recommendations WisDOT Mid-Term from such a study. 8- Expand and enhance transportation for the elderly and disabled in Sheboygan County through programming and budgeting for transportation RTC, Sheboygan Transit Mid-Term improvements. County Highway 9- The County shall continue to use WISLR to help prioritize Department, Local Ongoing improvements to the existing street system. municipalities 10- Official mapping of future streets and public trails shall be undertaken County Highway Long-Term to preserve important corridors. Department 11- Study and implement a controlled access ordinance on the County County Highway Mid-Term

9-19 Sheboygan County Comprehensive Plan Adopted

Roads. Department 12- Evaluate roundabouts in Sheboygan County (including their safety and County Highway ability to keep the flow of traffic moving), at least annually and before Immediate Department, WisDOT other roundabouts are constructed. 13- Encourage an increase in signage warning drivers of the space that County Highway Immediate semi-trailers and dual trailers need when navigating roundabouts. Department, WisDOT 14- Ensure designs for new roundabouts provide adequate space for County Highway Immediate drivers, including semi-trailers, to navigate and proper signage. Department, WisDOT County Highway 15- Encourage setbacks that would eliminate the need to back onto Department, Local Mid-Term roadways. municipalities WisDOT, County 16- Apply for grants to help fund the development, maintenance, and Highway Department, Ongoing connection of Sheboygan County’s multi-modal transportation system. County Planning, Local municipalities WisDOT, County Highway Department, 17- Work with the County’s communities, WisDOT, school districts, and County Planning, Local Ongoing other entities to develop the County’s multi-modal transportation system. municipalities, Local schools 18- Ensure the development and continued improvements of the Sheboygan Sheboygan County County Memorial Airport to keep pace with new technology and to meet Memorial Airport, County Ongoing air transportation needs. Transportation Committee 19- Support the development of aviation related business through the Sheboygan County promotion of compatible land uses to protect its function as a vital Memorial Airport, County Ongoing component of the County's transportation system. Transportation Committee 20- Continue to implement the recommendations in Sheboygan County Sheboygan County Memorial Airport’s recently completed airport master plan and investigate Memorial Airport, County Ongoing methods of expanding passenger and freight service at the airport. Transportation Committee 21- Encourage the development of and continued improvements to the rail WisDOT, Local Ongoing network in the County. municipalities 22- Encourage an increased use of rail crossing signal lights, crossing bars, WisDOT, Local Immediate and signs, beyond minimum standards. municipalities WisDOT, Local 23- Support the development of rail related business through the promotion municipalities, Sheb. of compatible land uses to protect its function as a vital component of the Ongoing County Economic County's transportation system. Development Corporation WisDOT, County 24- Design county highways and local streets within the context of the Highway Department, Ongoing surrounding land use. Local municipalities WisDOT, County 25- Different and like land use types are efficiently connected to reduce Highway Department, Mid-Term VMT. Local municipalities WisDOT, County Highway Department, Sheboygan Transit, 26- Ensure the connection of different transportation modes including County Planning, Local Ongoing buses, automobiles, planes, trains, walking, and bicycling to reduce VMT. municipalities, Sheboygan County Airport Memorial 27- The County shall maintain and update its five-year Capital County Finance Improvements Program, with all necessary inclusions for transportation and Ongoing Department other public utilities and facilities. 28- Support the recommendations in the WisDOT’s Connections 2030 WisDOT, County Mid-Term

9-20 Sheboygan County Comprehensive Plan Adopted

Plan. Highway Department, County Planning WisDOT, County 29- Complete a jurisdictional study of roads in Sheboygan County. Long-Term Highway Department 30- Implement a Complete Streets concept (streets that accommodate multi- WisDOT, County modal forms of transportation, providing accessibility for all users) where Highway Department, Mid-Term applicable, i.e. urban portions and urban fringe portions of the County. County Planning 31- Continue to provide adequate maintenance of the County’s County Highway Depar., Ongoing transportation facilities. County Planning 32- Maintain and enhance existing nonmotorized transportation County Planning, County Ongoing infrastructure consistent with the Regional Transportation System Plan. Highway Department 33- Include facilities for walking and bicycling during the review and approval of all development projects, including street and highway County Planning, Local Mid-Term improvements, to provide an alternative to vehicle travel and to promote a municipalities healthy lifestyle, especially in urbanized areas. 34- Continue to develop a trails system that pedestrians and bicyclists can County Planning, County Ongoing use to travel to all parts of the County and to connect with regional trails. Highway Department 35- Provide infrastructure for bicycle and pedestrian travel as an alternative County Planning, County Ongoing to motor vehicle travel. Highway Department 36- Implement the goals, objectives, policies, and programs in the County Planning Ongoing Sheboygan County Pedestrian and Bicycle Comprehensive Plan 2035. 37- When constructing or upgrading transportation facilities, minimize the WisDOT, County disturbance of the County’s natural, cultural, agricultural, historical, Highway Department, Ongoing architectural, and archaeological resources. County Planning

Utilities and Community Facilities Goals • Maintain, enhance, reduce, or expand public services in Sheboygan County, as necessary, due to changing demands of its citizens. • Support and encourage sustainable and efficient energy options in public and private development. • Encourage intergovernmental coordination and cooperation in providing and planning utilities and community facilities. • Ensure the continuation of County services to maintain and protect the public, human, and environmental health of residents of the County. • Provide and maintain County recreational facilities that provide safe, passive, and active opportunities for residents and visitors. • Promote and encourage local municipalities to provide adequate and efficient utilities, such as sewer, water, solid waste, and power, in a cost-effective, sustainable manner. • Ensure that Sheboygan County facilities are adequate to enable County departments and agencies to operate effectively. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION 1- Explore the possibility of private-public partnerships in the areas of Shared Services schools, fire, EMS, and police, in order to continue or expand services and Subcommittee, Various Mid-Term programs. other committees 2- Periodically survey County residents to assess their needs for services County Planning Ongoing in Sheboygan County. 3- Encourage school districts, municipalities, and local communities to School districts, local Immediate work together to achieve the highest quality education for students. municipalities/communities

9-21 Sheboygan County Comprehensive Plan Adopted

Local Colleges/ 4- Support the local continuing education programs at local colleges. Ongoing Universities County Health and Human 5- Work to provide County residents with adequate public and private Services Department, health care facilities to maintain the high level of health care in Sheboygan Ongoing Health Care County. Facilities/Providers 6- Continue to provide health care services, programs, and facilities by County Health and Human Ongoing County agencies, where appropriate. Services Department County Health and Human 7- Continue to support the Aging and Disability Resource Center. Ongoing Services Department 8- Continue to implement Chapter 80, Sheboygan County Federated County Health and Human Ongoing Library System Ordinance, of the Sheboygan County Code of Ordinances. Services Department 9- Continue to provide police protection to County residents through the County Sheriff’s Ongoing Sheboygan County Sheriff’s Department. Department County Sheriff’s 10- Continue the partnerships between the local police departments, the Department, Local County Sheriff’s Department, and the local municipalities, including the municipal police Ongoing SWAT team, the dive team, and the Multi-jurisdictional Enforcement departments, MEG Unit, Group (MEG). Other law enforcement agencies 11- Periodically assess the Sheriff’s Department, Law Enforcement County Sheriff’s Center, Jail, and Detention Center to determine if the facilities are Department, County Law Mid-Term adequate to serve Sheboygan County. Committee County Sheriff’s 12- Continue to provide both police and fire presentations and programs, Department, Local Ongoing such as CounterAct, throughout local schools. municipal police departments, County Fire Departments, 13- Continue the use of mutual aid agreements for fire protection. Ongoing Local municipalities 14- Encourage coordination of service areas, possibly by completing a County Emergency study to look at cross-boundary issues, such as EMS and Fire Protection Management, County EMS Long-Term Services (e.g. the gap in fire protection on the west-central side of the Council County). 15- Promote ordinances that encourage the use of alternative energy Local municipalities, Immediate sources. County Planning

Local municipalities and 16- Promote the acquisition of energy from alternative sources. their facilities, County Mid-Term Planning

17- Review and evaluate the potential for the County to participate in State Local municipalities, and Federal sustainable energy programs (e.g. Focus on Energy, 25 X 25, Immediate County Planning U.S. Energy Efficiency and Conservation Block Grants). 18- Provide technical assistance to help local units of government use Local municipalities, sustainable energy sources. This may include assisting in the preparation Ongoing UW-Extension of grants or other funding sources. 19- Educate and inform citizens about the use of alternative energy UW-Extension, Ongoing sources and increased energy efficiencies. Local municipalities County Administrator, 20- Continue the local heads of government meetings. County Chamber of Ongoing Commerce 21- Support the development of a County water testing facility on the UW-Extension, UW- Mid-Term UW-Sheboygan Campus. Sheboygan

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22- Continue the private water testing between the UW-Extension and UW-Extension, Local Ongoing local municipalities. municipalities

Various County Police and 23- Continue cooperation in local police and fire services, including Fire Departments, Local Ongoing mutual aid agreements. municipalities 24- Continue the Sewer Service Area (SSA) agreements and collaboration SSA municipalities, SS and cooperation for the Sewer Service Area and the Sewer Service Plan Plan Technical Advisory Ongoing Technical Advisory Committee. Committee 25- Support the development of land use patterns and water quality control Wastewater Treatment programs to effectively meet the wastewater disposal needs of the local Facilities, Local Ongoing municipalities. municipalities Local municipalities, 26- Establish a cooperative process with DNR, BLRPC, and local WDNR, BLRPC, County governments to develop a framework for coordinated planning of land Planning, County Land and Mid-Term use, sewage treatment and disposal, stormwater management, and water Water Conservation, supply facilities and services. Wastewater Treatment Facilities 27- Identify and explore how to remediate leaking petroleum and gas WDNR, Individual Long-Term tanks within Sheboygan County. property owners 28- Support the implementation of water control plans, regulations, and facilities to manage stormwater runoff and flooding and minimize the WDNR Long-Term adverse effects of flooding. 29- Continue to implement Chapter 75, Erosion Control and Stormwater County Land and Water Ongoing Management Ordinance, of the Sheboygan County Code of Ordinances. Conservation 30- Continue to implement Chapter 77, Animal Waste Storage Facility County Land and Water Ongoing Ordinance, of the Sheboygan County Code of Ordinances. Conservation WDNR, County Planning, 31- Identify techniques to properly collect and treat stormwater runoff. County Land and Water Immediate Conservation WDNR, County Planning, 32- Investigate the development of a program to supply stormwater County Land and Water Mid-Term management devices to private property owners (e.g. rain barrels). Conservation, Local nonprofits 33- Continue to implement Chapter 70, Sanitary Ordinance, of the Sheboygan County Code of Ordinances, which includes regulation of County Planning Ongoing POWTS. 34- Continue to implement Chapters 10 through 19, Title II: Health and Welfare Ordinances, of the Sheboygan County Code of Ordinances, these County Health and Human include the licensure of hotels, motels, restaurants, tattooing, as well as Ongoing Services Department ordinances on the County-owned health care facilities, emergency medical services, etc. 35- Continue to operate the County Health and Human Services Department programs, such as immunization clinics, restaurant inspections/licensing, beach water testing programs, Women, Infants, and County Health and Human Ongoing Children (WIC) Nutrition Program, public health nurses home visits, Services Department Pregnancy and Young Family Service Programs, and Lead Poisoning Programs, etc. 36- Continue holding the hazardous wastes collection sites throughout the County, including the collection of items containing mercury. County Planning Ongoing

37- Continue to apply for grants to conduct household and agricultural chemical hazardous waste Clean Sweep Programs. County Planning Ongoing

38- Partner with local communities and counties during implementation of Local municipalities, Immediate these programs. County Planning

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39- Continue holding the annual waste pharmaceuticals collection. County Planning Ongoing 40- Explore the feasibility of establishing a permanent household County Planning, hazardous wastes and permanent waste pharmaceuticals collection site(s) Sheboygan Police Ongoing in the County. Department Collection Box County Planning, Law 41- Work with pharmacies, medical centers, health care providers, hospice Enforcement Agencies, providers, and veterinarians in Sheboygan County to develop a program Health Care Providers, Mid-Term for unused pharmaceuticals. Medical Facilities, Pharmacies, Etc. 42- Explore regional partnerships for recycling programs and facilities. County Planning, BLRPC Ongoing 43- Continue to update local municipalities’ recycling and solid waste County Planning Ongoing collection information on the County’s website. 44- Continue the updates to the County’s Outdoor Recreation and Open Space Plan and encourage the local municipalities to participate in these County Planning, WDNR Ongoing updates, in order to remain eligible to receive funds from the WDNR Knowles-Nelson Stewardship Program. County Planning, 45- Explore private-public partnerships for the maintenance and Nonmotorized Mid-Term acquisition of recreation and open space opportunities. Transportation Nonprofit, Private Companies County Planning, 46- Work to connect the County’s Old Plank Road Trail with the Nonmotorized Long-Term Interurban Trail. Transportation Nonprofit 47- Provide technical assistance as municipalities explore funding for County Planning Mid-Term recreation needs. County Planning, 48- Continue to provide funding for parks and recreation opportunities Stewardship Fund Citizen Ongoing through the County’s Stewardship Fund. and Technical Advisory Committee, County Board UW-Extension, County 49- Educate and inform local municipalities and agencies on ways they Land and Water Ongoing can protect their water supply. Conservation, WDNR, County Planning Local municipalities, Local 50- Encourage the development of long-range facility plans for sewer, sewer and solid waste Long-Term water and solid waste disposal. disposal and wastewater treatment facilities 51- Provide information on ordinances revisions that may help to promote Local municipalities, Mid-Term greater efficiency in utilities. County Planning 52- Inform local officials about funding sources in order to achieve, UW-Extension, County Mid-Term greater energy efficiency or increase the use of alternative energy sources. Planning 53- Continue the annual County budget process to help ensure County County Board, County departments and agencies have the personnel and resources required to Immediate Finance perform the public services offered by Sheboygan County. 54- Continue to prepare Capital Improvement Plans (CIP) to help identify County Finance Ongoing major County projects. 55- Continue to prepare strategic plans for County government to County Administrator Ongoing prioritize short-term needs and projects.

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Intergovernmental Cooperation Goals • Foster communication, coordination, and cooperation between and among surrounding units of governments, including the State and Federal Governments. • Encourage economically responsible, shared services and facilities between units and levels of government. • Resolve land use planning issues, ordinance administration, and other boundary issue conflicts between communities in Sheboygan County. • Strive to communicate and work with surrounding political entities, seeking ways to conduct joint planning and consider service agreements. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION County Administrator, 1- Continue to hold the Local Heads of Government Meetings at least County Chamber of Ongoing quarterly. Commerce 2- Continue coordinating emergency response services with all EMS, police, and fire departments in Sheboygan County (e.g. continuing the County Emergency Ongoing mutual aid agreements (Mutual Aid Box System), the Local Emergency Management Planning Committee, Criminal Justice Advisory Committee, etc.) 3- Develop other committees that allow public works personnel, such as Various County Board roadway personnel and wastewater treatment facility personnel to Committees, Shared Mid-Term communicate and coordinate their issues. Service Subcommittee 4- Develop a share-point website that municipalities and other County Information intergovernmental agencies can share information, including posting Mid-Term Systems agendas, minutes, public hearings, links, WisDOT information, etc. County Administrator, 5- Continue to hold the Local Heads of Government Meetings, Chamber County Chamber of Ongoing Roundtable Meetings, BLRPC meetings, etc Commerce, BLRPC 6- Work to develop a universal protocol for the dissemination of County Planning, County Mid-Term information between all intergovernmental parties concerned in the matter. Board Shared Service 7- Hold cooperative meetings, on a regular basis, with the City/County Subcommittee, purchasing agent to work with local municipalities on reducing costs on Immediate Purchasing Agent, Local any purchases the municipality may need to make. municipalities UW-Extension, County 8- Encourage the UW-Extension, the County Chamber, and other Chamber of Commerce, appropriate organizations to hold forums where mutual issues and Mid-Term BLRPC, Shared Service opportunities can be discussed. Subcommittee 9- Continue the cooperation between the WDNR and the County, e.g. when WDNR, County Planning Ongoing managing the Sheboygan Marsh, wetland zoning issues, etc. 10- Identify existing duplication of services within municipal governments Local municipalities, in Sheboygan County to better coordinate services, potentially reduce costs, Shared Services Mid-Term and improve efficiencies. Subcommittee UW-Extension, County 11- Encourage forums to allow communication and discussion of possible EMS Council, County shared service opportunities at various government meetings, such as Local Chamber of Commerce, Mid-Term Heads of Government Meetings, EMS Council Meetings, County/City BLRPC, Shared Service Shared Service Committee, etc. Subcommittee, County Administrator 12- Encourage joint grant applications that will offset the cost of the County Planning Ongoing services. 13- Develop County resources to assist in mediation of potential conflicts UW-Extension, County Mid-Term

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between local governments, if requested. Planning 14- Continue to pass resolutions in support of or opposition to state and County Board Ongoing federal policies/programs. 15- Continue to work closely with state and federal legislators and agencies Various County Depts., in order to provide input on programs required and the costs associated Various State Depts., Ongoing with these programs. Various Federal Depts. SGIC Intergovernmental Cooperation 16- Explore privatization as a potential method of providing governmental Subcommittee, Shared services, if the same or enhanced level of services, can be provided at a Mid-Term Service Committee, lower cost. Various County Board Committees 17- Sponsor an annual workshop on opportunities for and examples of County Planning, UW- Immediate shared services. Extension 18- Review, as part of the County’s annual budgeting process, the County Budgeting opportunities to provide efficient and economical public facilities and Immediate Process, County Finance services through cooperation with other units of government. 19- Identify existing conflicts in Sheboygan County between units of County Planning, UW- Ongoing government and identify potential ways to resolve these conflicts. Extension 20- Continue to provide GIS data and mapping to local governments to aid County Planning Ongoing in cooperative planning. 21- Continue to educate and inform local governments about cooperative County Planning Ongoing boundary strategies (e.g. boundary agreements). 22- Continue to work with appropriate agencies in providing information County Planning, UW- Ongoing on land-use related ordinances and programs to local governments. Extension 23- The County Planning Department and the UW-Extension will provide UW-Extension, County Immediate education and mediation services for boundary issues and agreements. Planning SGIC Intergovernmental Cooperation Subcomm., 24- Continue to hold meetings with appropriate personnel/agencies to Heads of Local Ongoing communicate possible areas for joint planning and service agreements. Government, Shared Services Subcommittee 25- Continue intergovernmental agreements and shared service between the Local municipalities, County, Towns, and Villages to provide police protection through the County Sheriff’s Ongoing Sheriff’s Department. Department Local municipalities, 26- The County Highway Department shall continue to offer shared County Highway Ongoing maintenance and construction services to local municipalities. Department Ambulance Service 27- Continue the ambulance shared service agreements in the County. Providers, County Ongoing Emergency Management Local municipalities, 28- Explore solid waste disposal shared services/contracts. local solid waste disposal Mid-Term firms

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Land Use Goals • Encourage the minimization of land use conflicts/issues between municipalities. • Promote orderly and cost-effective development practices that make use of existing and planned services. • Provide technical assistance on land use issues to local municipalities (e.g. reference materials, workshops, and forums). • Continue revising, updating, creating, and implementing planning documents. KEY GROUPS FOR ACTIVITY LAUNCH DATE IMPLEMENTATION 1- Periodically review, such as when a land use map is revised or amended, County Planning, SGIC the future land use maps of the municipalities, and provide a listing of the Mid-Term Land Use Subcommittee potential issues. 2- Explore providing mediation and facilitation services to allow local UW-Extension Immediate municipalities to discuss issues that may arise. County Administrator, 3- Continue to use the Heads of Local Governments Meetings to address County Chamber of Ongoing issues that may arise. Commerce 4- In communities with sewer service areas and other urban services, encourage the development of infill areas and areas contiguous to existing Local municipalities, Immediate development be given priority before the development of noncontiguous County Planning areas. 5- Promote the development of diverse neighborhoods in areas where sewer Local municipalities, Immediate services are available, as opposed to stand-along single-use developments. County Planning 6- Develop model ordinances for use by the local municipalities, such as subdivision, conservation by design, traditional neighborhood County Planning Ongoing development, stormwater management, erosion control, and any other applicable ordinances. 7- Develop model design guidelines and a site plan review process for local communities to ensure quality commercial and industrial buildings designs County Planning Mid-Term that meet community standards. 8- Identify and distribute a color and category scheme to local County Planning Immediate municipalities. 9- Offer to provide mapping services to local municipalities, to ensure a consistent a color and category scheme is used in land use planning, County Planning Mid-Term particularly the future land use maps. 10- Continue to inform local municipalities when there will be updates and County Planning, Local revisions to the Outdoor Recreation and Open Space Plan, so Mid-Term municipalities municipalities can provide updates to the County. 11- Continue implementation of the County’s Outdoor Recreation and County Planning Immediate Open Space Plan, including the acquisition of additional lands. 12- Work to implement the County’s Natural Areas and Critical Resources County Planning Ongoing Plan. 13- Promote awareness of purchase of agricultural conservation easements SGIC Agriculture programs, purchase of development rights programs, or transfer of Subcommittee, County Long-Term development rights programs, using the priority farmland identified in the Planning, Local LESA analysis. nonprofits SGIC Agriculture 14- Identify areas of prime farmland by completing a countywide LESA Subcommittee, County Mid-Term analysis. Planning 15- Work to implement the recommendations in the County’s Land and County Land and Water Ongoing Water Management Plan. Conservation

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16- Update and revise the Sheboygan County Subdivision Ordinance. County Planning Immediate County Planning, 17- Update and revise other County ordinances, as necessary (e.g. sanitary County Land and Water Mid-Term regulations, stormwater management ordinances, etc.) Conservation

PLAN REVIEW TIMELINE Approximately five years after the initial adoption of this Comprehensive Plan, the Planning, Resources, Agriculture, and Extension Committee will review the vision, goals, objectives, policies, and programs in the Plan to determine whether they are still applicable, and if so whether progress has been made in accomplishing them. The County will consider adjustments as necessary.

No more than ten years after the initial adoption of this Comprehensive Plan, the Planning, Resources, Agriculture, and Extension Committee will update and amend the Plan as required by ch. 66.1001(2)(i). This Plan will be amended upon the adoption of all municipalities’ Comprehensive Plans, in order to include all individual future land use maps in the County’s Plan.

PROCESS FOR ADOPTING OR AMENDING THE PLAN As directed by 66.1001, Wisconsin Statutes, a plan commission or other body that is authorized to prepare or amend a comprehensive plan may recommend by resolution the adoption or amendment of a comprehensive plan only by majority vote of the entire body. The Planning, Resources, Agriculture, and Extension committee of the County Board is charged with this duty. The vote shall be recorded in the official minutes of the Planning, Resources, Agriculture, and Extension Committee. The resolution shall refer to maps and other descriptive materials that relate to one or more elements of a comprehensive plan. One copy of an adopted or amended comprehensive plan shall be sent to all of the following:

1. Every governmental body that is located in whole or in part within the boundaries of Sheboygan County.

2. The clerk of every local governmental unit that is adjacent to Sheboygan County.

3. The Wisconsin Department of Administration.

4. The Bay-Lake Regional Planning Commission.

5. The local public library.

No comprehensive plan that is recommended for adoption or amendment may take effect until the County Board enacts an ordinance that adopts the plan or amendment. The County Board may not enact an ordinance unless the comprehensive plan contains all of the elements specified in ch. 66.1001. An ordinance may be enacted only by a majority vote of the members-elect, as defined in 59.001 (2m), Wisconsin Statutes, of the County Board. An ordinance that is enacted, and the plan to which it relates, shall be filed with at least all of the entities specified in the list numbered 1-5 above.

The County may not enact an ordinance unless it holds at least one public hearing at which the proposed ordinance is discussed. That hearing must be preceded by a class 1 notice under ch. 985 that is published at least 30 days before the hearing is held. The County may also provide notice of

9-28 Sheboygan County Comprehensive Plan Adopted the hearing by any other means it considers appropriate. The class 1 notice shall contain at least the following information:

1. The date, time and place of the hearing.

2. A summary, which may include a map, of the proposed comprehensive plan or amendment to such a plan.

3. The name of an individual employed by the local governmental unit who may provide additional information regarding the proposed ordinance.

4. Information relating to where and when the proposed comprehensive plan or amendment to such a plan may be inspected before the hearing, and how a copy of the plan or amendment may be obtained.

At least 30 days before the hearing is held, a local governmental unit shall provide written notice to all of the following:

1. An operator who has obtained, or made application for, a permit that is described under s.295.12 (3) (d).

2. A person who has registered a marketable nonmetallic mineral deposit under s.295.20.

3. Any other property owner or leaseholder who has an interest in property pursuant to which the person may extract nonmetallic mineral resources, if the property owner or leaseholder requests in writing that the local governmental unit provide the property owner or leaseholder notice of the hearing.

The County shall maintain a list of persons who submit a written request to receive notice of any proposed comprehensive plan ordinance that affects the allowable use of the property owned by the person. At least 30 days before the public hearing is held, the County shall provide written notice, including a copy of the proposed ordinance, to all such persons. The notice shall be by mail or in any reasonable form that is agreed to by the person and the County. The County may charge each person on the list who receives a notice a fee that does not exceed the approximate cost of providing the notice to the person.

Additional Plan Amendment Considerations In addition to the requirement in ch. 66.1001 for amending a comprehensive plan at least once every ten years, it is possible that more limited amendments for specific issues may arise for consideration at any time. Sheboygan County realizes that certain specific amendments to municipalities’ Comprehensive Plans might have significant ramifications for Sheboygan County and other governmental units. Therefore, Sheboygan County will strive to 1) communicate in advance all proposed Sheboygan County 20-Year Comprehensive Plan amendments, and 2) invite the participation of other governmental units in the decision making process of this Plan. Sometime in early 2010, the County will also amend this Plan, upon the adoption of all local municipalities’ plans, in order to fold all municipalities’ future land use plans into the County’s Comprehensive Plan.

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CHAPTER 8 – LAND USE INTRODUCTION The wide ranges of land uses in Sheboygan County are a reflection of the diverse demographics, geography, and communities within Sheboygan County. The Cities of Sheboygan, Sheboygan Falls, and Plymouth are in contrast to some of the rural areas of the County. Sometimes as a result of these contrasts, conflicts regarding the use of land can occur. The land use portion of this plan is intended to present information on the current and future land uses within Sheboygan County.

This plan is intended to be a quilt of all the adopted comprehensive plans of Sheboygan County. It will fold Sheboygan County’s municipalities potential future land use maps, into one countywide Potential Future Land Use Map. This chapter also tries to acknowledge the inconsistencies between municipalities land use plans. This chapter presents an inventory of the historical and existing land uses, as well as, land use trends, development constraints, a land use map, and projected land use needs in five-year increments.

EXISTING LAND USE CONTROLS This section inventories and discusses the land use controls (e.g., development plans, ordinances, etc.) that may affect or restrict the use of land for specific purposes within Sheboygan County. These controls should be reviewed periodically to make certain that they assist in implementing the future development of the County and its municipalities.

Planning Documents Existing Comprehensive Plans or Land Use Plans Prior to this effort, Sheboygan County has not had a comprehensive plan, or anything of such a nature. By the end of 2010, all of Sheboygan County’s municipalities will have adopted their own comprehensive plan that provides recommendations to their future development/ preservation intentions. The County’s local plans were developed by a variety of groups including consultants, Bay Lake Regional Planning Commission, UW-Extension, and Sheboygan County.

Sheboygan County Outdoor Recreation and Open Space Plan 2007 Sheboygan County’s Outdoor Recreation and Open Space Plan was updated and adopted in 2007. This plan takes into consideration all outdoor recreation and open space areas in Sheboygan County (excluding the City of Sheboygan) Sheboygan County’s Outdoor Recreation and Open Space Plan’s vision is that “Sheboygan County will offer its residents the best possible system of outdoor recreation and open space sites and activities in a manner which is responsive to the needs of the public, fiscally responsible, and which promotes the preservation and sustainability of the County’s outstanding environmental, archeological, historical, and cultural resources.” This plan has four main goals:

• Ensure the provision and protection of sufficient parks, recreation facilities, and open areas to satisfy the health, safety, and welfare needs of citizens and visitors, including under-served populations, • The acquisition of park and open space lands should occur in coordination with development to provide for reasonable acquisition costs and facilitate site planning for

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development. Alternative means of reserving lands required for open space should be fully explored to ensure that lands are obtained at the lowest cost to the public, • Promote the involvement and cooperation of al the County’s communities in park and recreation planning and development, and • Develop tools to protect open space.

Sheboygan County Farmland Preservation Plan The Sheboygan County Farmland Preservation Plan states as its primary goal, “…to identify the County’s agricultural resources and needs, and to balance them with development demands and community growth.” The plans policies seek to discourage random and scattered growth, low- density development, and discontinuity of developing areas, which inflate costs of services, etc. Furthermore, the plan also seeks to discourage the mixing of incompatible uses of the land.

Sheboygan County Natural Areas and Critical Resources Plan As part of the Comprehensive Planning Process, Sheboygan County developed its Sheboygan County Natural Areas and Critical Resources Plan. The Sheboygan County Natural Areas and Critical Resources Plan has three separate components: natural resources, agricultural resources, and historic resources. Each of these components had a citizens working group that helped to develop goals, objectives, policies, and programs. These were reviewed as part of the Comprehensive Planning Process. Vision statements were also created for each of the three components.

Natural Resources Vision “In 2020, Sheboygan County embraces a climate for natural resources that provides healthy ecosystems, a healthy economy, and a high quality of life for all residents. The County promotes sound land use decisions that minimize negative environmental impacts, considers long-term consequences, is suitable for a location, makes efficient use of existing and future infrastructure and services, accounts for community costs, results from a broad public consensus, and is consistent with the community and regional character.”

Agricultural Resources Vision “In 2020, Sheboygan County embraces a climate for agriculture that promotes innovation, new markets, entrepreneurship, diversity, and vitality that coexists with the natural features of the landscape as well as the expanding urban population.”

Historical Resources Vision “In 2020, Sheboygan County embraces a climate for cultural and historic resources that promotes a healthy economy and high quality of life for all residents and visitors. The County promotes sound land use decisions that minimize negative impacts on these resources, considers long-term consequences, is suitable for a location, accounts for community costs, results from a broad public consensus, and is consistent with the community and regional character.”

Land Use Regulations Ordinances Sheboygan County does not maintain a general zoning ordinance. Rather, each city, village and town in the County maintains its own zoning ordinance. The general purpose of these zoning

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ordinances is typically promotion of a community’s health, safety, morals, prosperity, and welfare.

The Wisconsin planning enabling legislation requires that all land use related actions (regulation, etc.) of local governmental units must be consistent with their adopted comprehensive plan. As a result, the local zoning ordinances shall be reviewed and updated to be made consistent with their adopted comprehensive plans and any subsequent updates to the plans.

Refer to the general zoning ordinances’ of each community for detailed information on local zoning districts, regulations, restrictions, permitted uses and zoning maps. The County does administer other ordinances that play a role in land use and these will be discussed on the following pages.

Sheboygan County maintains a sanitary ordinance, subdivision ordinance, shoreland and shoreland-wetland ordinance, floodplain zoning ordinance, erosion control and stormwater management, animal waste storage, and non-metallic mining reclamation regulations.

Sheboygan County Sanitary Ordinance Chapter 70 of the Sheboygan County Code contains the Sheboygan County Sanitary Ordinance, which promotes the proper siting, design, installation, inspection, management, and maintenance of private sewage systems. The ordinance requires the preparation and approval of sanitary permits for the location, design, construction, alteration, installation and use of all private sewage and septic systems of residential, commercial, industrial, and governmental uses within unincorporated areas.

Sheboygan County Subdivision Ordinance Chapter 71 of the Sheboygan County Code contains the Sheboygan County Subdivision Ordinance. This ordinance regulates the unincorporated areas of Sheboygan County, or where incorporated communities have entered into agreement under sec 66.30 Wisconsin Statutes, to exercise cooperative authority to approve divisions of tracts of land into subdivisions, where the act of division creates five or more parcels from the same “Mother Tract” of land.

A subdivision is defined as the division of a lot, parcel, or tract of land by the owner, or the owner’ agent, for the purpose of transfer of ownership or building development where the act of division creates: five or more lots, parcels, or building sites of forty acres each or less in an area; or five or more lots, parcels, or building sites of forty acres each of less in an area by successive divisions from the same “mother tract” within a fiver year period. A mother tract of land that is, or at any time in the previous twenty years was, in the same ownership. Contiguous parcels in the same ownership are considered to be one parcel for purposes of this definition, even though the separate parcels may have separate tax identification numbers or were acquired at different times or from different persons.

Many municipalities within Sheboygan County maintain their own subdivision ordinance.

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Floodplain Ordinance Chapter 73 of the Sheboygan County Code contains the Sheboygan County Floodplain Zoning Ordinance, which is intended to regulate floodplain development to • Protect life, health and property, • Minimize expenditures of public funds for flood control projects, • Minimize rescue and relief efforts undertaken at the expense of the taxpayers, • Minimize business interruptions and other economic disruptions, • Minimize damage to public facilities in the floodplain, • Minimize the occurrence of future flood blight areas in the floodplain,’ • Discourage the victimization of unwary land and home buyers, • Prevent increases in flood heights that could increase flood damage and result in conflicts between property owners; and • Discourage development in a floodplain if there is any practicable alternative to locate the activity, use, or structure outside of the floodplain.

Shoreland/Shoreland-Wetland Ordinance Chapter 72 of the Sheboygan County Code contains the Shoreland Zoning Ordinance, which Propose is to further the maintenance of safe and healthful conditions; to prevent and control water pollution; to protect spawning grounds, fish, and aquatic life; to control building sites, placement of structure and land uses to discourage development in erosion hazard areas, particularly along the coast of Lake Michigan; and to preserve shore cover and natural beauty.

Erosion Control and Stormwater Management Sheboygan County addresses erosion control and storm water management activities through Chapter 75 of County Code of Ordinances. This ordinance applies to erosion control and storm water management activities for unincorporated areas of the County, with a few exceptions, which are laid out in the ordinance. The Towns of Sheboygan and Wilson have more stringent ordinances than the County’s so these municipalities do not fall under the County’s jurisdiction The purpose of the storm water management ordinance is to diminish the threats to public health, safety, welfare, and the aquatic environment by limiting the rate of runoff and sediment loads discharged from development to waters of the State and regulatory wetlands in Sheboygan County. Sheboygan County’s Land and Water Conservation Department (LWCD) administers this ordinance. Projects that fall under the criteria are regulated by the ordinance, and need to apply for a permit from the LWCD. These projects are then approved/denied based on the steps the applicant is going to take to reduce erosion and storm water runoff. The LWCD staff complete site inspections and helps the applicants ensure they are reducing the erosion from their construction activities.

Animal Waste Storage Sheboygan County has adopted Chapter 77 of its Code of Ordinances relating to the storage of animal waste. The purpose of this Ordinance is to assure the safe handling and spreading of animal waste as well as to regulate the location, design, construction, alteration, operations, and maintenance of all animal feeding operations and livestock waste storage facilities; to regulate the abandonment of livestock waste storage facilities in order to prevent water pollution, protect the health and safety of residents and transients, prevent the spread of disease, and to promote the prosperity and general welfare of the citizens of Sheboygan County.

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Non-Metallic Mining Reclamation Regulations State Statute Chapter 295 requires that nonmetallic mining operations have a reclamation plan. This plan needs to describe what will be done with the land once mining operations cease. The State Statute then gives the power to the WDNR, who crated Wisconsin State Administrative Code NR135, which gave this authority to the counties; Sheboygan County has enacted a non- metallic mining program in Chapter 78 of its Code of Ordinances. The reclamation plan is a detailed technical document designed to meet the goals that will lead to successful reclamation and will help reduce the negative effects to the environment once the mine is abandoned. Most non-metallic mining operations in the County would require a conditional use permit from the respective municipality in which the operation exists.

Wetlands Wetlands act as natural filters, making many lakes and streams cleaner and drinking water safer. They act as groundwater discharge areas and retain floodwaters. Filling or draining of wetlands is costly, destroys the productive capacity of the ecosystem and can adversely affect surface water quality and drainage. Additionally, they provide valuable and irreplaceable habitat for many plants and animals.

Because of their importance, there are strict regulations regarding wetlands. Wisconsin Administrative Codes NR 115 and NR 117 fall under the jurisdiction of the WDNR, and mandate that shoreland wetlands be protected in both the rural and urban areas of the State. In the unincorporated areas, NR 115 provides the legislation to protect wetlands of five acres or more that are within the jurisdiction of county shoreland zoning ordinances. Wetlands not in the shoreland zone are protected from development by the federal government and the WDNR through Section 404 of the Clean Water Act, and NR 103, respectively. It should be noted that all wetlands, no matter how small, are subject to WDNR and possible federal regulations, if they meet the State definition.

Official Map An official map under Ch. 62.23(6), 61.35, 60.10(2)c of state statutes is intended to implement a town, village, or city master plan for streets, highways, parkways, parks and playgrounds, and drainageways. Its basis purpose is to prohibit the construction of buildings or structures and their associated improvements on land that has been designated for current or future public use. Sheboygan County does not have the authority to adopt an official map, but some municipalities within Sheboygan County have adopted an official map.

Extraterritorial Jurisdiction Extraterritorial jurisdiction can be a major factor in planning, since a town can be impacted by the 1.5 or 3-mile jurisdiction of a city of village. The only type of extraterritorial jurisdiction being exercised in Sheboygan County currently is the platting jurisdiction. In spring of 2009, there were two cities and six villages in Sheboygan County that exercised extraterritorial platting jurisdiction. Other municipalities are thinking about exercising this regulation.

Historic Preservation There may be some areas in Sheboygan County where development is either not desired or should be carefully designed due to the special historic character of the location. The City of

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Sheboygan has developed a historic preservation commission, which recently designated a historic church district and the City of Sheboygan Falls has a historic district. For more information on these districts, see Chapter 2.

Conservation Easements Also known as land protection agreements or development rights, conservation easements are entered into by willing landowners seeking to permanently protect their land from future development. Individual agreements can cover hundreds of acres of land and therefore become a factor in land use planning because they remove land from development consideration in perpetuity. Current the WDNR has acquired easements and development rights on 643 acres of land. Individual landowners can also work independently, at any time, with local non-profit land trusts such as the Glacial Lakes Conservancy. As of summer 2009, the Glacial Lakes Conservancy had about 490 acres in conservation easements in Sheboygan County, but this number is ever changing. This means that Sheboygan County has over 1,100 acres in conservation easement or development rights protection.

Highway Access Highway access restrictions can impact development patterns by making it difficult, or impossible, to site buildings along highways. All state and federal highways within the county are subject to WisDOT review pertaining to existing or additional access. This includes any request for new driveways, reconstruction of existing driveways or even the change of use for an existing driveway. WisDOT’s review also includes any request from subdivision developers regarding new town roads. New town roads will be reviewed much the same as a new driveway access would be reviewed, except that they also need the approval of the local municipalities and the permits are issued only to the local municipality. The two State Statutes the WisDOT uses for access controls are 84.09 and 84.25. Access controls under 84.09 are purchased under State Statute 84.09 Acquisition of Lands and Interests, which is the same statute used for the purchase of real estate. Access controls under 84.25 are controls that can only be applied to highways that meet the criteria listed in the Statute, and these controls are capped at 1,500 miles statewide.

At this time (2009), WisDOT is in the process of establishing Section 84.25 Access Controls in Sheboygan County on STH 57 from STH 23 to the north county line. This process of Administrative Access Controls by Section 84.25 of the Wisconsin State Statutes is, at this time proposed to be completed later in 2009 or the very first part 2010. In addition to the above mentioned access controls, there may be spotty controls on any one highway from existing right- of-way plats or Trans 233 land divisions. These are best reviewed on an individual basis because they can be from as small as one parcel to several sections.

Access management is a means to maintain the safe and efficient movement of traffic along arterial and major collector highways by controlling the number and location of intersecting roads and driveways. State statutes allow counties, cities, and villages (through an adopted ordinance) to control access on county highways that have traffic counts in excess of 1,000 vehicles daily. At this time, Sheboygan County does not have a Controlled Access Ordinance, but may pursue the establishment of one on County roads in the planning period.

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CURRENT LAND USE INVENTORY In order to plan for future land use and development in Sheboygan County, it is necessary to consider the existing land uses. A land use inventory, which classifies different types of land use activities, is an important means of identifying the current conditions. In the summer of 2002, Bay-Lake Regional Planning Commission completed a windshield land use survey. Some individual municipalities chose to update their existing land use data from the 2002 windshield survey in their own comprehensive plans, but for consistency, the County will use the data from 2002 from Bay-Lake Regional Planning Commission for the entire County. By using Bay-Lake Regional Planning Commission’s data, it allows the data to be compared historically because Bay-Lake Regional Planning Commission has conducted land use surveys in 1975 and 1980 for Sheboygan County.

Historic Land Use Types and Amounts Table 8-1a shows the historical land use data within Sheboygan County taken through a land use survey by Bay Lake Regional Planning Commission. It can be seen between 1975 and 2002 that commercial and industrial land uses increased countywide, while the land in agriculture has decreased since 1975, land designated as natural areas increased between the 1980 and 2002 land use survey. There is a possible reason for the decrease in land in residential land use acres; in 1975, for all rural residential units, one-acre was given to them, but in 2002, when geographic information systems (GIS) was used, a more precise number was calculates based on home and yard size. Another difference between the years is the way that the roads (transportation) was measured in 1975 compared to 2002. In 1975 each roadway was given a default of 66 feet, and in 2002 this was more accurate from road edge to road edge, since many roads only have about 30 feet of pavement. The 2002 land use survey is based on GIS data, so may provide a more accurate picture of the land use in Sheboygan County.

Table 8-1a: Historical Land Use Data by Land Use Survey in Sheboygan County

1975 County 2002 County Land Use Classifications Total Acres Total Acres* Residential 13,175.56 12,743.91 Commercial 476.09 1,454.87

Industrial 1,799.87 3,161.15 Transportation 13,357.82 6,779.06 Communications/Utilities 2,579.39 411.09 Institutional/Governmental 1,011.21 1,659.93

Outdoor Recreation 3,435.72 5,365.41 Agriculture/Silviculture 217,497.17 188,274.45 Natural Areas 78,387.62 111,580.81

Total Acres 331,720.45 331,430.67*

*Difference in land use totals may be due to rounding differences and the use of GIS in the 2002 land use study. Source: Bay-Lake Regional Planning Commission

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Table 8-1b provides historical land use trends by using the assessment classification by the Wisconsin Department of Revenue. This table shows some general trends in the increased number of acres assessed in commercial property, as well as an increase in acres assessed residential, while at the same time the number of acres assessed in agricultural declined. Both tables tend to show the same trends in regards to land use in Sheboygan County. The assessed acreage does not include all the acreage in the County because the assessment categories changed between 2002 and 2008. There has been differences in the way forest, swamp and waste, and other categories have been addressed in that time frame. The assessment data provides trend data, but these numbers should not be taken as absolute.

Table 8-1b: Historical Land Use Trends by Assessment Classification in Sheboygan County Assessment Classification 2002 County Total Acres 2008 County Total Acres Residential* 29,646 32,634 Commercial* 6,199 7,433 Manufacturing 2,843 2,828 Agricultural 172,175 165,489 * City of Sheboygan not included. Source: Wisconsin Department of Revenue, “Statement of Assessments.” (Note: The WDOR does not audit this information and therefore cannot confirm the completeness or accuracy of the data.)

Analysis of 2002 Current Land Use Map 8-1 shows the Bay Lake Regional Planning Commission 2002 land use data for Sheboygan County.

Developed Land Of the developed land uses, residential land (12,743.91 acres) makes up nearly 50 percent of all the developed land in Sheboygan County (See Table 8-2). Single-family residential is the largest category within residential land uses. Residential lot sizes vary greatly throughout Sheboygan County, with the City of Sheboygan having average lots of a quarter acre, where residences in some of the rural towns have 5 acre or larger lot sizes. Residential development is generally concentrated in the cities, villages, and hamlets, but there are scattered residences located throughout Sheboygan County.

Commercial development is generally located in the cities and villages, and in 2002 commercial land use was less than 0.50 percent of all land uses within the County. Commercial land use only made up 5.5 percent of the developed land in the County.

In 2002, industrial land use is more than double that over commercial land use within the County. There were over 3,160 acres identified as industrial in 2002. This means that over 12 percent of all the developed land in the County is industrial, but still it only makes up 0.95 percent of all the land in the County.

Over 6,779 acres of land were dedicated as transportation-related in 2002. This is about 26 percent of all developed land and about 2 percent of the total land in Sheboygan County. Most of this land is in the local roads and streets. The air-related land uses make up about 2 percent of the developed land in Sheboygan County.

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[Map 8-1: 2002 Land Use]

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Communication and utilities related land uses make up only 411 acres of land in the County, while institutional and governmental uses make up about 0.5 percent of the total land in the County, with education institutions and religious and related facilities being the largest two categories of land use.

Undeveloped Land In 2002, the largest amount of total land in Sheboygan County was used for agriculture related uses, followed by natural areas (See Table 8-2), which are both undeveloped land uses. Cropland and pasture lands made up the largest land use countywide, with over 55 percent of all land in Sheboygan County falling into this category. This is not surprising knowing the rich farming heritage of Sheboygan County. Farm buildings and accessories are about 1 percent of the total land use in Sheboygan County. Natural areas made up about 34 percent of the total land area in Sheboygan County with woodlands making up about 22 percent of all the land in the County. These natural areas provide for many outdoor recreation opportunities, which is why about 1.6 percent of all land is related to outdoor recreation. Other natural areas, including wetlands make up about 10.25 percent of all the land in Sheboygan County and made up about 11 percent of all the undeveloped land in Sheboygan County.

Table 8-2: Sheboygan County Land Use Amount and Intensity, March 2002 Percentage of Percentage of Land Use Type Acres Developed Land Total Land DEVELOPED 26,210.01 100.00% 7.91% Residential 12,743.91 48.62% 3.85% single-family 11,377.01 43.41% 3.43% two-family 596.72 2.28% 0.18% multi-family 370.83 1.41% 0.11% mobile homes 204.7 0.78% 0.06% Commercial 1,454.87 5.55% 0.44% retail sales 1,101.78 4.20% 0.33% Industrial 3,161.15 12.06% 0.95% manufacturing 1,692.26 6.46% 0.51% extractive 661.45 2.52% 0.20% open storage 127.52 0.49% 0.04% enclosed storage 635.07 2.42% 0.19% Transportation 6,779.06 25.86% 2.05% state highways 429.86 1.64% 0.13% county highways 968.53 3.70% 0.29% local streets and roads 3,417.43 13.04% 1.03% air related 527.21 2.01% 0.16% rail related 669.45 2.55% 0.20% Communication / Utilities 411.09 1.57% 0.12% generation/processing of communication/utilities 73.23 0.28% 0.02% electric power substations 34.44 0.13% 0.01% radio/TV trans. tower/antennae 13.05 0.05% 0.00% natural gas substations 6.46 0.02% 0.00% waste processing/disposal/recycling 264.25 1.01% 0.08%

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Percentage of Percentage of Land Use Type Acres Undeveloped Land Total Land Institutional / Governmental 1,659.93 6.33% 0.50% fire station/office 24.01 0.09% 0.01% religious and related facilities, cemeteries 571.12 2.18% 0.17% education institutions 449.11 1.71% 0.14% Percentage of Percentage of Land Use Type Acres Undeveloped Land Total Land UNDEVELOPED 305,220.67 100.00% 92.09% Outdoor Recreation 5,365.41 1.76% 1.62% parks/picnic areas 1670.84 0.55% 0.50% Agriculture 188,274.45 61.68% 56.81% open space 1,250.47 0.41% 0.38% croplands; pastures 182,863.26 59.91% 55.17% long-term specialty crops 408.13 0.13% 0.12% farm buildings/accessories 3,549.97 1.16% 1.07% vacant agricultural 45.28 0.01% 0.01% Natural Areas 111,580.81 36.56% 33.67% reservoirs; ponds 1,502.05 0.49% 0.45% lakes 849.97 0.28% 0.26% rivers and streams 1,761.55 0.58% 0.53% other natural areas, including wetlands 33,983.30 11.13% 10.25% woodlands 72,365.10 23.71% 21.83%

TOTAL LANDS 331,430.68 n/a 100% Source: Bay-Lake Regional Planning Commission, 2002

LAND SUPPLY Amount With 92% of the land in Sheboygan County categorized as “undeveloped,” there would appear to be an over-abundance of developable vacant land within the County; however, in one sense, agriculture is an “industry” and could be considered a type of development since the land now used for farming has undergone a change from its natural, truly vacant state of 200+ years ago. Further, a significant amount of undeveloped land lies in woodlands, wetlands, and other natural areas and would therefore be difficult to develop, even if such activity would be permitted by the WDNR. There are opportunities for residential, commercial, and industrial development in Sheboygan County’s three cities, with additional development opportunities in some of the villages within the County and the urban towns. There appears to be an adequate supply of land available for future development throughout Sheboygan County. For specific information about what land is available for development in Sheboygan County, please look at individual municipalities’ comprehensive plans.

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Price Land prices vary significantly, depending on surrounding land uses, location, access, water frontage, presence of woodlands, and many other factors. It is difficult to generalize the market price for property within the County due to site-specific features that dictate the price of land. Generally speaking, prices have been a bit lower in Sheboygan County, compared to areas closer to the Milwaukee metro area. Any attempt to project where land prices might go in the future is extremely difficult due to recent market volatility.

Demand Sheboygan County contains a significant amount of land for the development of residential, commercial, park and recreation, industrial and institutional/governmental land uses, while preserving its many natural areas and its productive farmland. During the 1990s and early 2000s, a number of factors came together to spur an unprecedented level of residential development in Sheboygan County. New residential growth has slowed in 2006-present. The trend has been for people to move from larger cities to many smaller communities, and have larger lot sizes and rural residential living. This trend has increased commuting times and energy costs for housing. There is also demand for more elder care facilities, as Sheboygan County’s population continues to age.

With the increase in lanes of STH 23 to Fond du Lac, the trend of commuting will continue. The highway corridors in Sheboygan County also provide for commercial opportunities. As these opportunities increase, it will put a demand on the land near these corridors. As industries develop along the highway corridors, traffic volumes will continue to increase.

The County’s abundant resources are also always in demand. Shoreline property is at a premium in the County, with some inland lakes not having many developable sites remaining. This trend is expected to continue.

REDEVELOPMENT OPPORTUNITIES AND SMART GROWTH AREAS There are some redevelopment opportunities in Sheboygan County. The most prevalent areas for opportunities for redevelopment are located in the City of Sheboygan and include the Taylor Heights area and business areas along the Sheboygan River. There are some other scattered areas for redevelopment in local municipalities. Brownfields are abandoned, idle or underused commercial or industrial properties, where the expansion or redevelopment is hindered by real or perceived contamination. Brownfields vary in size, location, age, and past use -- they can be anything from a five-hundred acre automobile assembly plant to a small, abandoned corner gas station. There are no large-scale brownfields or sizable tracts of land within Sheboygan County that need redevelopment at the present time. There are many small sites that are listed as having leaking underground storage tanks (LUST), environmental repair (ERP), and abandoned containers. The open and closed LUST and ERP sites in Sheboygan County are shown in Map 4-2. For more information on these sites visit the DNRs Contaminated Lands Environmental Action Network at http://dnr.wi.gov/org/aw/rr/clean.htm. Under the County’s non-metallic mining reclamation ordinance, however, there are sites in the County that may undergo redevelopment in the future. There are also scattered parcels and structures that could be improved, converted to other uses, or redeveloped entirely. Areas that should be targeted for

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redevelopment include blighted areas, such as business and residential sites that are beyond repair and should be redeveloped.

The Smart Growth Areas within Sheboygan County include those areas that are already services by public sewer, water, and have easy access to highways. The Villages and Cities in Sheboygan County and their bordering areas provide a great opportunity for smart growth. These areas are identified in many of the municipalities’ comprehensive plans.

DEVELOPMENT CONSIDERATION AND CONSTRAINTS Environmental, Financial, Transportation, and Public Utility Considerations and Constraints A significant amount wetlands, floodplain, steep slopes, and shoreland jurisdiction weave through the Town (see Map 8-2), and these features have constrained development in the past and will probably continue to do so. In most cases, this is an appropriate constraint. Map 8-2 also shows the public lands in the County, which would also provide constraints on development. Maintaining the connections between environmental corridors will also be a constraint on development. The map of environmental corridors in Sheboygan County is found in Chapter 2.

Sheboygan County’s total general obligation debt as of December 31, 2008 was $31,280,000, which is less than 0.35 percent of its full value. This means overall Sheboygan County has a high debt margin and is conservative in its borrowing. Therefore, the County has the capacity to borrow for infrastructure for future development projects if it so desires.

It has been determined that an adequate transportation network of arterial and collector roads are already in place within Sheboygan County to serve future traffic flows generated from new growth, and the County’s subdivision ordinance makes adequate provision for the construction of local roads to serve new development.

No official hydrological study has been performed to determine the inventory, consumption, and ongoing supply of acceptable groundwater in Sheboygan County, but no significant problems have been reported recently with well water quantity or quality. There are minor issues with water quality in some areas, so the continuation of private well testing will remain important. Given the general abundance of this resource in the area and the current and projected populations and industrial usages for the area, it is not anticipated that water supply will be a constraint. The Sheboygan River, leading to Lake Michigan, is in an Area of Concern and is contaminated with PCBs. There is a strong possibility that dredging will occur in the river in the planning period. The PCBs and other contaminants limit use of the Sheboygan River. For more information on this see Chapter 2 or Appendix 3.

Soils in most of the rural areas of the County are generally adequate for low-density development on mound, conventional, or newer technology on-site waste disposal systems. Any intense or high-density development would be better suited to a municipality with a public wastewater treatment facility or an area in a sanitary district.

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[Map 8-2:Development Constraints]

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LAND USE ISSUES, CONFLICTS, BOUNDARY INCONSISTENCIES Some anticipated land use issues, conflicts or boundary inconsistencies include:

As the cities and villages possibly look to expand through annexation tensions will rise. Annexation and border issues are thought to be the most common conflict that will occur in the 20-year planning period. Below is a listing of some general possible land use issues and conflicts.

• Cooperation with incorporated municipalities and towns regarding development patterns on the bordering lands. • Annexation. • Agriculture and non-agricultural developments. New non-farm developments should be made aware of active farms as well as the activities that characterize farming operations. • Inconsistent preservation of natural areas. • Fragmentation of agricultural lands and habitats. • Non-metallic mining operations and residential development incompatibilities. • Protection and enhancement of the surface waters and shorelines located in Sheboygan County, including Lake Michigan. • Surface and groundwater contaminations. • Access controls along highway corridors. • Increased loads on county and local roads, as well as, irregular traffic and commuter patterns. • Siting of utilities and communication facilities

Below is a listing of significant conflicts at the borders between the cities/villages and the towns’ future land use maps.

• Differences Between Town of Sheboygan Falls and City of Sheboygan Falls: o Road locations o Business/commercial development along STH 23 and CTH TT for the City of Falls and residential for development along STH 23 in the Town of Falls and agricultural lands along CTH TT. • Differences Between City of Sheboygan Falls and Village of Kohler: o Along Rangeline Road there are incompatible land uses; on one side of Rangeline, the City has industrial and two-family, while the Village of Kohler shows this to be residential. • Differences Between Village of Cedar Grove and Town of Holland: o North of CTH LL east of the Village the Town shows part of this to be rural residential, where the Village shows this to be manufacturing and a business park.

ANTICIPATED LAND USE TRENDS Since all local communities in Sheboygan County administer their own local ordinances (zoning, building permits, etc.) there is not a tangible future land use map of Sheboygan County contained in this Plan. Rather, the future land use map for Sheboygan County is actually a “quilt” composed of each local community’s future land use map that meets the Wisconsin Comprehensive Planning Law requirements. Since all of the local comprehensive plans are not

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yet completed, it is not possible to create a composite map showing the future land use maps are developed, they should be considered as additional pieces of the overall future land use map quilt of Sheboygan County, and the County’s future land use map should be amended to include them. In addition, as local communities amend their future land use maps, the municipalities should notify Sheboygan County so that the County’s potential future land use map can be updated on an annual basis to reflect the most current local decisions. The Potential Future Land Use Map identifies in a generalized fashion the future land use maps from those communities that have completed local comprehensive plans that meet the requirements of the comprehensive planning law. The Future Land Use Maps may not be consistent in extraterritorial areas, but Map 8-3a shows the Potential Future Land Use data from the political jurisdiction’s plan, not from the municipality with the extraterritorial jurisdiction over the area. Map 8-3b shows the potential future land use of the cities and villages as they extend into the towns with these plans. Map 8-3b also shows which municipalities exercise extraterritorial platting jurisdiction, and the boundaries of extraterritorial platting jurisdiction of all municipalities, including those that currently do not exercise it.

It is anticipated that over the next 10-20 years Sheboygan County will grow at a moderate pace, continuing the current pace of growth at about 6 percent in the next ten years. According to the Comprehensive Planning Community Survey, over 50 percent of respondents wanted to see the current growth rates continue, while 27 percent wanted the County to grow at a slower rate. Many factors determine the growth rates, but this trend of moderate to slow growth is present many municipalities comprehensive plans. If large scale business development occurs in the County, this moderate growth pace may increase, as more jobs bring more people to the area.

Possible external impacts on local land use are expected to include: 1) a large business or industry moving to or starting up in Sheboygan County, 2) the overall aging population, which may lead to more diverse housing options, 3) the increasing ability due to technological innovations to telecommute or start a home-based business, 3) the desire for passive recreation options, such as biking and walking trails, and 5) increasing emphasis on renewable energy options.

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[Map 8-3a: Generalized Future Land Use]

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[Map 8-3b: City and Village Future Land Use Plans in Extraterritorial Jurisdictions]

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20-YEAR LAND USE PROJECTIONS Five-Year Incremental Land Use Projections The State of Wisconsin Comprehensive Planning Law requires that municipalities project their future land use needs for residential, commercial, industrial, and agricultural lands for a 20-year period in 5-year increments (See Table 8-3).

The issues and opportunities chapter states that Sheboygan County’s population is expected to grow by approximately 15,559 people from the WisDOA estimated 2008 population of 117,472 to the WisDOA projected population of 133,031 persons in 2030. In 2000, there were an average of 2.51 people per household; this is projected to decrease to 2.38 people per household in 2030. This means there will be a need for 10,455 additional housing units over the timeframe of this plan. Recent development trends show that new lots developed on public sewer systems (including the sewer service area, sanitary districts, the cities, etc.) average about 0.48 acres (20,908 square feet) in size, while those residences being developed on private sewage system generally average four acres in lot size.

Residential Projections In 2009, there were approximately 9,000 private sewage systems, which means about 22,200 people were on private sewage systems. An analysis of development trends in the County shows that approximately 75 percent of new residential development is on public sewer, and the remaining 25 percent have private sewer systems. Based on this pattern of development continuing through the planning period (2030), there would be a need for 3,764 acres of additional sewered residential development and 10,455 acres of private onsite sewage disposal systems residential development. Adding the two total together results in 14,219 acres of land needed to accommodate residential development through the year 2030.

Commercial, Industrial, and Agricultural Projections The 2002 land use inventory found that the ratio of land uses in the County is about 0.11 acres of commercial for every 1 acre of residential and 0.25 acres of industrial for every 1 acre of residential. Applying the ratios to the 14,219 acres needed for residential development yields the need for another 1,564 acres of commercial land and 3,555 acres of industrial land during the planning period. It is estimated that for every acre of land needed for new development 0.90 acres of agricultural land and 0.10 acres of natural lands will be lost. This means that 19,338 acres of land will be lost due to residential, commercial, industrial development in the 20-year planning period, of that 17,404 will be farmland. Table 8-3 shows these projections.

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Table 8-3: Land Use Projections for Sheboygan County in Five-Year Increments Current 2015 2020 2025 2030 Use (total acres & (total acres & (total acres & (total acres & (total acres & % of total land) % of total land) % of total land) % of total land) % of total land) Residential 12,744 16,298 19,853 23,407 26,963 3.8% 4.9% 6.0% 7.1% 8.1% Commercial 1,455 1,846 2,237 2,628 3,019 0.4% 0.6% 0.7% 0.8% 0.9% Industrial 3,161 4,049 4,938 5,826 6,716 1.0% 1.2% 1.5% 1.8% 2.0% Agricultural 188,274 183,923 179,572 175,221 170,870 56.8% 55.5% 54.2% 52.9% 51.6% Other 125,777 125,298 124,819 124,340 123,863 37.9% 37.8% 37.7% 37.5% 37.4%

331,431 331,431 331,431 331,431 331,431 TOTAL 100% 100% 100% 100% 100% Important Note: The projections in Figure 8.6 are made to satisfy Ch. 66.1001(2)(h) Wisconsin Statutes. These are estimates only and the County is not required to meet these projections.

20-Year Potential Land Use Map Comments This map is a “quilt” of all municipalities in Sheboygan County adopted comprehensive plans. Map 8-3a shows a generalized picture of the future land use maps of the municipalities in Sheboygan County. Some of these maps are draft and are noted as such on Map 8-3a. Map 8-3a generalizes all residential development into shades of yellow, and all business and commercial into reds, but many municipalities break these categories down further on their future land use maps. The breakdown off all the labels/categories used by the municipalities for their future land use maps can be found in Appendix 15. Appendix 15 also has all of the draft and adopted future land use maps as of September 2009. For the most accurate and up-to-date maps individual municipalities should be contacted.

As can be seen in the future land use maps the eastern side of Sheboygan County appears to have more areas that will be developed in the next 20-years. The towns and villages of western Sheboygan County seem to have slower growth trends occurring. This is not a surprising trend knowing that the City of Sheboygan is the largest population area in Sheboygan County, so faster growth would be expected to occur in areas adjacent to the City.

Many areas in Sheboygan County, especially areas in the towns, are projected to remain in agriculture and natural areas in the next 20-years. Most of the rural towns do not see much residential growth expect around the villages, cities, hamlets, and by existing residential development.

COORDINATION BETWEEN 20-YEAR LAND USE MAP AND ZONING MAP The 20-Year Potential Land Use Map is meant to be used as a guide for making decisions about rezonings and future developments, but as the County does not play a role in the local

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municipalities rezonings and future development, except subdivisions in the unincorporated areas of the County, it would be impractical to analyze in detail all municipalities’ future land use and zoning maps. When a rezoning request comes before a municipality's Plan Commission and Board, these bodies should refer to their future land use maps for initial guidance in responding to rezoning requests. If the request is in harmony with the municipality’s future land use map, the rezoning and/or development will likely proceed. If, on the other hand, the request is not in harmony with the future land use map, the rezoning and/or development should probably be denied. However, since the future land use map and the entire Plan is primarily a guide and not parcel specific, it is possible the applicant could present data and compelling reasons why his/her proposal is appropriate. In such a case, it might make sense for the Comprehensive Plan and future land use map to be amended to allow the proposal to go forward. A subsequent rezoning could then be approved that would be consistent with the amended Plan and future land use map.

Any amendments to the land use chapter and map must be considered in the context of all nine required plan elements, especially the vision, goals, objectives, and policies/programs described in this document. The amendment process includes a formal public hearing and distribution according to the requirements of Wisconsin’s Comprehensive Planning Law. Any amendment must be recommended by the municipality’s Plan Commission and approved by the municipality’s Board before permits may be issued and development can begin.

DEVELOPMENT/DESIGN STANDARDS Sheboygan County has little to no control over the development design standards in Sheboygan County; this is mostly left up to the local municipalities. The County has a few design/ development standards in its subdivision, shoreland, floodplain, erosion control, and animal waste storage ordinances. For the development and design standards of the municipalities in Sheboygan County, the individual municipalities’ zoning ordinances should be obtained.

LAND USE STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

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Land Use Goals, Objectives, Policies, and Programs Goal 1: Encourage the minimization of land use conflicts/issues between municipalities. Objective: Identify potential areas of land use conflict, based on local municipalities future land use maps/plans. Policy/Program: Periodically review, such as when a land use map is revised or amended, the future land use maps of the municipalities, and provide a listing of the potential conflicts. Objective: Work to develop a process to address boundary land use issues. Policy/Program: Explore providing mediation and facilitation services to allow local municipalities to discuss issues that may arise. Policy/Program: Continue to use the Heads of Local Governments Meetings to address issues that may arise.

Goal 2: Promote orderly and cost-effective development practices that make use of existing and planned services. Objective: Encourage development in areas that provide adequate infrastructure. Policy/Program: In communities with sewer service areas and other urban services, encourage the development of infill areas and areas contiguous to existing development be given priority before the development of noncontiguous areas. Policy/Program: Promote the development of diverse neighborhoods in areas where sewer services are available, as opposed to stand-alone single-use developments.

Goal 3: Provide technical assistance on land use issues to local municipalities (e.g. reference materials, workshops, and forums). Objective: Support local municipalities in the development of ordinances and design guidelines. Policy/Program: Develop model ordinances for use by the local municipalities, such as subdivision, conservation by design, traditional neighborhood development, stormwater management, erosion control, and any other applicable ordinances. Policy/Program: Develop model design guidelines and a site plan review process for local communities to ensure quality commercial and industrial buildings designs that meet community standards. Objective: Encourage local municipalities to use a standard category and color scheme when updating future land use maps. Policy/Program: Identify and distribute a color and category scheme to local municipalities. Policy/Program: Offer to provide mapping services to local municipalities, to ensure a consistent color and category scheme is used in land use planning, particularly the future land use maps.

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Goal 4: Continue revising, updating, creating, standardizing, and implementing County planning documents. Objective: Continue utilizing Sheboygan County’s Outdoor Recreation and Open Space Plan. Policy/Program: Continue to inform local municipalities when there will be updates and revisions to the Outdoor Recreation and Open Space Plan, so municipalities can provide updates to the County. Policy/Program: Continue implementation of the County’s Outdoor Recreation and Open Space Plan, including the acquisition of additional lands. Objective: Continue utilizing Sheboygan County’s Natural Areas and Critical Resources Plan. Policy/Program: Work to implement the County’s Natural Areas and Critical Resources Plan. Objective: Continue utilizing Sheboygan County’s Farmland Preservation Plan. Policy/Program: Identify areas of prime farmland by completing a countywide LESA analysis. Policy/Program: Promote awareness of purchase of agricultural conservation easement programs, purchase of development rights programs, or transfer of development rights programs, using the priority farmland identified in the LESA analysis. Objective: Continue utilizing Sheboygan County’s Land and Water Management Plan. Policy/Program: Work to implement the recommendations in the County’s Land and Water Management Plan. Objective: Continue utilizing Sheboygan County Ordinances. Policy/Program: Update and revise the Sheboygan County Subdivision Ordinance. Policy/Program: Update and revise other County ordinances, as necessary (e.g. sanitary regulations, stormwater management ordinances, etc.)

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CHAPTER 7 – INTERGOVERNMENTAL COOPERATION INTRODUCTION Cooperation between neighboring and overlapping units of government is one of the primary goals of the Wisconsin Comprehensive Planning Legislation. As Sheboygan County and its municipalities develop and redevelop over the next 20 years, it is important for Sheboygan County, and its municipalities, school districts, special districts, the region, and the state to work with each other to provide services and facilities for County residents.

In general terms, intergovernmental cooperation is any arrangement by which officials of two or more jurisdictions coordinate plans, policies, and programs to address and resolve issues of mutual interest. It can be as simple as sharing information, or it can involve formal intergovernmental agreements and sharing resources such as equipment, buildings, staff, and revenue. It can even involve consolidating services, jurisdictions, or transferring territory.

Many issues cross jurisdictional boundaries, affecting more than one community. For example, air and water pass over the landscape regardless of boundaries, and persons traveling along roadways use a network of transportation routes, moving between jurisdictions without even realizing it. This is why intergovernmental cooperation is a critical component of every community’s comprehensive plan, for without it even the best intentions of a plan can be undermined, even unintentionally, by an adjacent community with contradictory policies.

Sheboygan County strives to work together with its local municipalities in many ways, such as by sharing services and by holding shared service committee meetings. The County’s relationship with its local municipalities, the Bay-Lake Regional Planning Commission, the local school districts, and the state and federal governments can impact County residents in terms of taxation, planning, provision of services, and siting of public facilities. An examination of these relationships and the identification of opportunities to work together, as well as the identification of existing or potential conflicts can help the County address these situations in a productive manner. This chapter contains some examples of existing intergovernmental cooperation efforts and regional relationships within Sheboygan County that can serve as building blocks for future cooperation.

EXISTING INTERGOVERNMENTAL ACTIVITIES Adjacent Municipalities

Sheboygan County is made up of 28 municipalities that work together in many ways. For a listing of these municipalities, see Chapter 1. These municipalities have a generally, positive working relationship with the County. Calumet, Fond du Lac, Manitowoc, Ozaukee, and Washington Counties border Sheboygan County. The particular municipalities that border Sheboygan County are: the Town of New Holstein, Calumet County; the Towns of Schleswig, Meeme, and Centerville, Manitowoc County; the Towns of Marshfield, Forest, Osceola, and Auburn; Fond du Lac County; the Towns of Fredonia and Belgium, Ozaukee County; and the Town of Farmington, Washington County. Sheboygan County’s overall relationship with the neighboring communities is limited, but good. For example, Sheboygan County partners with Manitowoc, Calumet, and Fond du Lac Counties in order to hold a clean sweep for managing hazardous waste collection sites for County residents. The County also works with local municipalities in a variety of other ways. The County has a good working relationship with these

7-1 Sheboygan County Comprehensive Plan Adopted municipalities. Along with partnering on grants, the County shares road maintenance duties on the bordering roads.

Siting Public Facilities The County sites its public facilities, which include all County buildings, as well as, highway satellite offices, and County parklands. The County Board of Supervisors decides where new facilities will be located. The Highway Department may need a new facility or an upgrade to a current facility within the planning period. If the need arises, there may also be upgrades/expansion to the correctional facilities in the County in the planning period.

Sharing Public Services, Equipment, and Facilities The County is involved in partnerships to share public services in a number of ways. In 2002, the shared service subcommittee compiled a listing of the shared services that are known within the County, this has been subsequently updated in 2004 and 2009. A complete listing of these services can be found in Appendix 14. Some of the shared services include:

• 800 Megahertz Radio System • Mobile Data System • Law Enforcement Software • City/County Fiber Link • Easter Shores Library System • Purchasing • Enhanced 911-Dispatch • Cellular 911 • Multi-jurisdictional Enforcement Group (MEG Unit) • County Museum • Emergency Response Center • Sanitarian/Restaurant Inspection • Tax Software & Collection • Employee Training • Geographic Information System • Law Enforcement Target Range • Rural Address System • Parcel Mapping • Ordinance Enforcement • Public Health • Human Services • Agriculture/Land Conservation • Hazardous Waste Collection • Waste Medication Collection • Maywood Environmental Park • Fire Protection • Mutual Aid • Sewage Treatment • Water Utility • Stewardship Fund • City/County Dive Team

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• Century Kids-Fingerprinting • Accident Reconstruction Team • Criminal Investigations • Public Works/Highway • ADA Transportation • Senior Center/Meal Sites • Jail/Detention Center(s) • Ambulance • Hazardous Material Response Team • Emergency Government • Local Government Initiatives • Printing Services • Fire Investigation • Joint Dispatch Discussions

From the list above, one can see that Sheboygan County, its municipalities, and surrounding counties work together to provide the more efficient, cost-effective services to its citizens.

School Districts There are 13 different public school districts wholly or partially located within Sheboygan County. The relationship between the County and the school districts is limited. School districts tend to have greater interaction with the local municipalities. The public school districts and the municipalities served by the districts are shown in Table 7-1.

Table 7-1: Public School Districts Area Served Public School Districts Municipalities Served Within Sheboygan County Campbellsport* Towns of Greenbush and Mitchell Cedar Grove-Belgium Towns of Holland and Sherman and Village of Cedar Grove Elkhart Lake-Glenbeulah Towns of Greenbush, Herman, Plymouth, Rhine, and Russell and the Villages of Elkhart Lake and Glenbeulah Howards Grove Towns of Herman, Mosel, Rhine and Sheboygan Falls and Village of Howards Grove Kewaskum* Towns of Mitchell and Scott Kiel* Towns of Herman, Rhine, and Russell Kohler Towns of Sheboygan and Wilson and Village of Kohler and City of Sheboygan New Holstein* Towns of Greenbush and Russell Oostburg Towns of Holland, Lima, Lyndon, Sherman, and Wilson and Village of Oostburg Plymouth Town of Greenbush, Herman, Lima, Lyndon, Mitchell, Plymouth, Rhine, Scott, Sheboygan Falls, Sherman, and the Village of Cascade and City of Plymouth Random Lake Towns of Holland, Lyndon, Scott, and Sherman and the Villages of Adell and Random Lake Sheboygan Towns of Mosel, Sheboygan, and Wilson and Village of Kohler and City of Sheboygan Sheboygan Falls Towns of Herman, Lima, Lyndon, Sheboygan, Sheboygan Falls, and Wilson and Villages of Kohler and Waldo, and the City of Sheboygan Falls

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Siting School Facilities While a school district has a more direct relationship with the individual municipalities of Sheboygan County, school districts may still have contact with the County when siting new facilities. The recent trend in the County has been to consolidate facilities, as indicated by the closing of the Cascade Elementary School, the Parnell Elementary School, the Glenbeulah School, and the Batavia Elementary School. If school facilities need to be built, the siting of the new school facilities is mainly conducted by the school districts. Depending upon the location of the new facilities it may be subject to County ordinances and regulations, as well as, local regulations. Each school district evaluates their need for new facilities.

Sharing School Facilities Sheboygan County has no formal agreements with any of the school districts for their shared use; however, if the County approaches the school district to use their facilities, they have been generally receptive. In some cases, local municipalities may need to use the schools facilities because their town/village/city hall may not be large enough to accommodate the crowd. In some cases, school districts often allow recreational sport leagues to use public school facilities through local park and recreation department programs. The Sheboygan Recreation Department is part of the Sheboygan Area School District; they work together to provide recreational opportunities to citizens of the County.

County Each and every department, service, and facility of Sheboygan County is available to citizens from every Sheboygan County municipality. Sheboygan County cooperates with local municipalities and the surrounding counties in a wide variety of ways. The County has worked with many local municipalities in the completion of their comprehensive plans. The County also administers its countywide ordinances in the unincorporated areas of County. The County administers the Sanitary Ordinance, Subdivision Ordinance, Erosion Control and Storm water Management, and Shoreland-Floodplain Ordinance in unincorporated areas of the County, unless the local municipality has a more stringent ordinance. The County also helps Sheboygan County towns administer their state’s Farmland Preservation Program.

The Sheboygan County Job Center is a public/private venture that combines resources in a one-stop employment and training center for employers, job seekers, workers and students.

Region Bay-Lake Regional Planning Commission (BLRPC) Sheboygan County is located in the northeast region of the State of Wisconsin. Sheboygan County is a member of the Bay-Lake Regional Planning Commission (BLRPC). The BLRPC has a number of programs and plans in place covering natural resources, population projections, traffic counts, transportation plans, bike plans, etc., several of which have been used in the preparation of this comprehensive plan. BLRPC also helps with mapping and providing technical expertise in areas where the County is lacking.

Sheboygan Metropolitan Planning Organization (MPO) The Bay Lake Regional Plan Commission serves as the Metropolitan Planning Organization for the Sheboygan metropolitan planning area. In its role as Sheboygan MPO, the Bay Lake Regional Planning Commission is responsible for developing transportation plans and programs

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for the Sheboygan metropolitan planning area. As part of its responsibilities, the MPO is charged with providing a forum for cooperative transportation planning and decision-making and establishing a public involvement process that ensures opportunities for early and continuing general public involvement in the review and evaluation of transportation plans and programs in the Sheboygan metropolitan planning area. The following local units of government are partially or wholly contained within the Sheboygan metropolitan planning area:

• City of Sheboygan • City of Sheboygan Falls • Village of Howards Grove • Village of Kohler • Town of Sheboygan • Town of Herman • Town of Lima • Town of Mosel • Town of Sheboygan Falls • Town of Wilson

Projects and programs occurring within the MPO boundaries will follow a set of defined procedures. These procedures include the incorporation of projects listed in this Plan into the MPO Long Range Transportation Plan and Transportation Improvement Program.

East Wisconsin Counties Railroad Consortium (EWCRC) Sheboygan County belongs to the East Wisconsin Counties Railroad Consortium (EWCRC). This consortium is made up of representatives from Columbia, Dodge, Fond du Lac, Green Lake, Milwaukee, Ozaukee, Washington, Winnebago, and Sheboygan Counties. The EWCRC works with WSOR, as well as WisDOT, to help pay for the rehabilitation and maintenance of the railroad lines that traverse through its member Counties. EWCRC also works with WSOR to help rehabilitate rail lines once they are acquired by WisDOT.

State Sheboygan County’s relationship with the State of Wisconsin is one which deals mainly with issues related to education (UW-Extension), transportation (WisDOT), natural resources (WDNR), agriculture (DATCP), building (WisCOMM). There are other state agencies the County deals with such as: the Department of Health Services, Department of Corrections, Department of Administration, Department of Workforce Development, and many others. Below is a description of some of the relationships with state agencies.

UW-Extension The UW-Extension extends research, resources, and knowledge from the University of Wisconsin System to residents of Sheboygan County. The UW-Extension-Sheboygan County has a partnership with the County for the staffing of the facility. The County and UW-Extension work together to provide programming and education for Sheboygan County residents. The UW- Extension Sheboygan County also partners with Ozaukee and Washington Counties for agricultural extension agents.

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Wisconsin Department of Transportation (WisDOT) In partnership with local governments and other groups, WisDOT administers a variety of state and federal programs to complete projects that enhance the transportation network within Sheboygan County. The most significant projects that WisDOT plans to complete in Sheboygan County during the 20-year planning period is the expansion of Highway 23 to the county line as well as resurfacing Interstate Highway 43 in portions of the County.

Wisconsin Department of Natural Resources (WDNR) The Wisconsin Department of Natural Resources is dedicated to the preservation, protection, effective management, and maintenance of Wisconsin's natural resources. It is responsible for implementing the laws of the state and, where applicable, the laws of the federal government that protect and enhance the natural resources of the state. The WDNR is charged with coordinating the many disciplines and programs necessary to provide a healthy and sustainable environment and a full range of outdoor recreational opportunities for Wisconsin citizens and visitors. The WDNR makes grants available to local units of government for park acquisition and development. In the future, Sheboygan County should encourage its communities to acquire additional grant funds through the WDNR to improve recreational opportunities, to purchase land for parks, and to construct trails. The County shall also work with the WDNR and the adjacent communities that are impacted by the waterways of Sheboygan County to improve the water quality and increase recreational opportunities; this is especially true for the Milwaukee River Basin Area. Sheboygan County also works with the WDNR in the regulation of wetlands. Some specific area where the WDNR and Sheboygan County cooperate are listed below.

• Sheboygan Marsh Management - managed under a Memorandum of Understanding that is included in Appendix B of the 2001 Broughton Sheboygan Marsh Strategic Management Plan. • Consults and assists with habitat management on Gerber Lakes County Property. • Cooperation in acquisition has included lands other than parks - Sheboygan Marsh, Gerber Lakes, etc. • Fish & Wildlife grants have also been used for habitat projects in the County. • WDNR has conducted work in the Sheboygan River Basin as well as the Milwaukee River Basin. • The WDNR and County Planning work together to manage floodplains and shorelands • The WDNR and County Emergency Government work together on dam/flooding problems • The WDNR & County Health Department conduct public well inspections. • The WDNR & County Land Conservation Department work together on manure complaints and spills and funding of agricultural BMPs.

Wisconsin Department of Agriculture, Trade and Consumer Protection (DATCP) The Wisconsin Department of Agriculture, Trade, and Consumer Protection is responsible for food safety, animal and plant health, protecting water and soil, and monitoring fair and safe business practices. They inspect and license more than 100,000 businesses and individuals, analyze millions of laboratory samples, conduct hundreds of hearings and investigations, educate businesses and consumers about best practices, adopt rules that have the force of law, and promote Wisconsin agriculture at home and abroad. This agency works with the Planning

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Department, Land and Water Conservation Department, Health and Human Services through restaurant inspections, and some other County departments.

Wisconsin Department of Commerce The Wisconsin Department of Commerce administers regulations for onsite waste disposal systems in the State of Wisconsin. The Sheboygan County Planning Department’s office works closely with the Department of Commerce in the implementation of these regulations. The County Planning Department’s office enforces and implements these regulations for all unincorporated areas in Sheboygan County.

Wisconsin Department of Workforce Development Sheboygan County Job Center A public and private sector employment and training partnership committed to advancing the economic well-being of the county and building a quality work force through integration of training, education and economic development services for job seekers, workers and employers. This job center has funding through the state, county, and private agencies in order to pay for the services it provides to businesses and job seekers.

Great Lake Commission The Great Lakes Commission is a public agency established by the Great Lakes Basin Compact in 1955 to help its Member states and provinces speak with a unified voice and collectively fulfill their vision for a healthy, vibrant Great Lakes - St. Lawrence River region. Commission products and services focus on communication and education, information integration and reporting, facilitation and consensus building, and policy coordination and advocacy. The purpose of the Commission is to carry out the terms and requirements of the Great Lakes Basin Compact, as noted in Article 1: To promote the orderly, integrated, and comprehensive development, use, and conservation of the water resources of the Great Lakes Basin.

Council of the Great Lakes Governors The Great Lakes Governors share a dual stewardship for both the world’s single largest source of fresh water and the industrial heartland of North America. The Great Lakes contain one fifth of the world’s fresh water and the region’s companies manufacture 60 percent of the continent’s steel and 60 percent of automobiles made in North America. Today, the Council Governors lead the nation in advancing strategic alliances that stress continued protection of their natural resources and a sustainable world-class regional economy. Their belief is sound environmental policy makes good economic sense. The County may work in the future on projects related to Lake Michigan. The largest policy achievement is the Great Lakes-St. Lawrence River Basin Water Resources Compact is a legally binding agreement between the eight Great Lake states that prevents most diversions of Great Lakes water out of the region and establishes new water conservation and environmental protection standards for water use within the region.

Relationships in the past with these agencies have been adequate.

Federal U.S. Army Corps of Engineers (USACE) The U.S. Army Corps of Engineers regulates federal wetlands protection regulations in the State of Wisconsin. These regulations affect each municipality in Sheboygan County and many times coincide with State of Wisconsin wetland protection regulations.

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Federal Emergency Management Agency (FEMA) The Federal Emergency Management Agency works with the County during times of emergency. FEMA also requires mapping of the floodplains in the County.

U.S. Environmental Protection Agency (EPA) The U.S. Environmental Protection Agency is charged with administering federal environmental laws and regulations. Sheboygan County is part of the EPA non-attainment zone for air quality (for more information this see Chapter 2).

U.S. Department of Agriculture (USDA) The USDA works with Sheboygan County to provide agricultural statistics. The USDA also helps in the purchase and acquisitions of easements and may continue to do so in the future. The Natural Resource Conservation Service (NRCS) is also part of the USDA and has provided leadership in a partnership effort to help America's private land owners and managers conserve their soil, water, and other natural resources. NRCS employees provide technical assistance based on sound science and suited to a customer's specific needs. The NRCS provides financial assistance for many conservation activities including the County’s acquisition of GIS soil data.

National Oceanic and Atmospheric Administration (NOAA) NOAA is an agency under the Department of Commerce that enriches life through science and reaches from the surface of the sun to the depths of the ocean floor as it works to keep citizens informed of the changing environment around them. NOAA provides daily weather forecasts, severe storm warnings and climate monitoring, fisheries management, coastal restoration and supports marine commerce.

Sea Grant Sea Grant is a nationwide network (administered through NOAA), of 32 university-based programs that work with coastal communities. Environmental stewardship, long-term economic development and responsible use of America’s coastal, ocean and Great Lakes resources are at the heart of Sea Grant’s mission. The National Sea Grant College Program engages this network of the nation’s top universities in conducting scientific research, education, training, and extension projects designed to foster science-based decisions about the use and conservation of our aquatic resources. Wisconsin Sea Grant, based at the University of Wisconsin-Madison, is a statewide program of basic and applied research, education, and outreach and technology transfer dedicated to the stewardship and sustainable use of the nation's Great Lakes and ocean resources.

U.S. Fish and Wildlife Service The U.S. Fish and Wildlife Service is the principal federal agency responsible for conserving, protecting, and enhancing fish, wildlife, and plants and their habitats for the continuing benefit of the American people. The vast majority of fish and wildlife habitat is on lands not owned by the federal government. Partnerships with Native American tribes, state and local governments, nongovernmental organizations and private citizens are critical to the Service fulfilling its mission. Programs such as Partners for Fish and Wildlife, Partners in Flight, the Coastal Program, and partnership activities with individuals are the primary mechanisms for assisting in voluntary habitat restoration on non-Service lands and fostering conservation practices throughout the Region. The U.S. Fish and Wildlife Service employs 163 people in Wisconsin and for the resource management budget for fiscal year 2006 Service activities in Wisconsin

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totaled $13.5 million. The U.S. Fish and Wildlife Service works to protect threatened and endangered species within the County and also owns a few areas of land within the County.

INVENTORY OF PLANS AND AGREEMENTS UNDER S. 66.0301, S. 66.0307 or S. 66.0309 Cooperative Agreements There are a few different types of intergovernmental agreements under state statutes. These include stipulations and orders agreements, general agreements, and boundary agreements. There are agreements between municipalities for sewer and water utilities as well as mutual aid for fire protection. Nearly all of Sheboygan County’s municipalities contract with the County for road maintenance and snowplowing. Some municipalities also contract with the County for tax collection services. Finally, Sheboygan County partners with surrounding counties in order to provide waste medication collection and hazardous waste collection.

Cooperative Boundary Plan Not a single municipality in Sheboygan County has entered into a cooperative boundary agreement under state statute 66.0307. The County Planning Department with the assistance of the UW-Extension hosted a Boundary Agreement Workshop in 2009 that educated municipalities and interested citizens on boundary agreements.

Annexation Annexation is the process for transferring lands from unincorporated areas (towns) to contiguous incorporated areas (cities and villages). In Wisconsin, municipal annexations are typically initiated by landowners, and not by villages or cities. Annexations do occur in Sheboygan County, but the number of annexations has decreased in the last few years. Annexation by some cities and villages will probably occur in the 20-year planning period.

Extraterritorial Platting Jurisdiction (ETP) State Statutes allow an incorporated village or city to extend land division review over surrounding unincorporated areas. The extraterritorial area can extend for 1.5 miles for villages and cities under 10,000 people, and up to 3 miles for cities over 10,000. In spring of 2009, there were two cities and six villages in Sheboygan County that exercised extraterritorial platting jurisdiction. Other municipalities are thinking about exercising this regulation.

Extraterritorial Zoning Jurisdiction (ETZ) Cities have been given by statute either a 3-mile (if pop. 10,000 or more) or a 1.5-mile extent of zoning control outside their corporate boundaries if the proper cooperative steps with the adjoining town are followed. Villages have up to 1.5 miles, regardless of population. In 2008, extraterritorial zoning authority was not being practiced by any municipality within Sheboygan County, but in order to have extraterritorial zoning jurisdiction both municipalities need to agree and form a committee with three members from each municipality.

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INVENTORY OF EXISTING OR POTENTIAL CONFLICTS AND POSSIBLE RESOLUTION PROCESS

EXISTING OR POTENTIAL CONFLICTS There are some conflicts that may occur between the County and individual municipalities, as well as between local municipalities. It is vital to try to identify the areas of potential intergovernmental concern as well as possible ways to address these areas of concern. Some local municipalities that worked together in the development of their comprehensive plans have already developed a conflict resolution process. The County may need to do the same, or the County may need to act as a facilitator during these conflicts.

Existing or Potential Conflicts A. Road maintenance and snowplowing on shared roads B. Maximum weight limits on rural roads C. Inconsistencies between County, City, Village, and Town regulations and controls D. Annexation of land by the Cities and Villages from the Towns E. Extraterritorial jurisdictions by Cities and Villages F. Emergency services, including fire and ambulance services G. Some minor discrepancies between municipalities’ 20-Year Land Use Maps H. Utilities (i.e. changing sewer service area, building or expanding of utility facilities, the siting of utilities such as cellular towers and wind turbines, expanding or replacing pipelines or transmission lines, stormwater management, etc.) I. Erosion control issues J. Disturbance or changes to site lines, scenic views, and aesthetics K. Conflict with the State and its agencies in numerous areas, including the WisDOT (due to proposed road closures and design issues), WisDNR (regulations), WisCOMM (regulations), etc. L. Unfunded mandates from the State and Federal Governments

Proposed Conflict Resolution Process Continue to hold the Heads of Government Meetings on a quarterly basis to discuss boundary issues, shared service opportunities, and any other item of mutual concern between Sheboygan County Municipalities. It is important that the lines of communication always are open, and not just between the communities, but between the law enforcement agencies, fire departments, highway department, WDNR, WisDOT, and other governmental agencies. Having good communication will help limit the amount of conflict between parties.

For conflicts between a couple/few municipalities, a meeting can be held with representatives from the municipalities involved. Such a meeting would be facilitated by the UW-Extension or a similar third-party organization. This meeting may also provide the opportunity for a discussion of areas of joint cooperation along with working towards a resolution of the conflict. Each municipality’s board/common council involved will select three members to be at these meetings to ensure equal representation. The UW-Extension will serve as a mediator, not having a vote in the matter. The UW-Extension can invite other interested parties who are involved with the dispute or conflict to come and speak, but these parties will also not have a vote. This joint committee will then vote on a solution. This will not be a final vote on the solution, but will provide a recommendation to take back to the appropriate governmental bodies for final review

7-10 Sheboygan County Comprehensive Plan Adopted and consideration. For example, this process may be needed for conflicts that deal with future development near another municipality. A city or village may want an area to be commercial in the future, while the town may think it should be residential. The municipalities involved can then ask that the UW-Extension to mediate a discussion between the parties.

To ensure continued consistency and compatibility between plans, ordinances, regulations, and policies, an official County Comprehensive Plan Amendment Procedure shall be established within one year of adoption of the comprehensive plans.

The County and its municipalities need to continue to have working relationships with appropriate government entities. The County shall remain informed of any WDNR regulation changes affecting County ordinances, WisDOT projects, and other state issues affecting the County. The County shall work to stay informed and provide input on projects/laws/rules/ regulations that effect itself and its municipalities.

INTERGOVERNMENTAL STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

Intergovernmental Cooperation Goals, Objectives, Policies, and Programs Goal 1: Foster communication, coordination, and cooperation between and among surrounding units of governments, including the State and Federal Governments. Objective: Promote an understanding among all levels of government regarding the roles and responsibilities of each. Policy/Program: Continue to hold the Local Heads of Government Meetings at least quarterly. Policy/Program: Continue coordinating emergency response services with all EMS, police, and fire departments in Sheboygan County (e.g. continuing the mutual aid agreements (Mutual Aid Box System), the Local Emergency Planning Committee, Criminal Justice Advisory Committee, etc.) Policy/Program: Develop other committees that allow public works personnel, such as roadway personnel and wastewater treatment facility personnel to communicate and coordinate their issues.

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Objective: Design initiatives to communicate outcomes and common issues internally, as well as with its municipalities, School Districts, Bay Lake Regional Planning Commission (BLRPC), State agencies, and other entities in an efficient and cost effective manner. Policy/Program: Develop a share-point website that municipalities and other intergovernmental agencies can share information, including posting agendas, minutes, public hearings, links, WisDOT information, etc. Policy/Program: Work to develop a universal protocol for the dissemination of information between all intergovernmental parties concerned in the matter. Policy/Program: Continue to hold the Local Heads of Government Meetings, Chamber Roundtable Meetings, BLRPC meetings, etc. Policy/Program: Hold cooperative meetings, on a regular basis, with the City/County purchasing agent to work with local municipalities on reducing costs on any purchases the municipality may need to make. Policy/Program: Encourage the UW-Extension, the County Chamber, and other appropriate organizations to hold forums where mutual issues and opportunities can be discussed. Objective: Encourage communication and cooperation between counties and other levels of government in the delivery of services and facilities. Policy/Program: Continue the cooperation between the WDNR and the County, e.g. when managing the Sheboygan Marsh, wetland zoning issues, etc. Policy/Program: Identify existing duplication of services within municipal governments in Sheboygan County to better coordinate services, potentially reduce costs, and improve efficiencies. Policy/Program: Encourage forums to allow communication and discussion of possible shared service opportunities at various government meetings, such as Local Heads of Government Meetings, EMS Council Meetings, County/City Shared Service Committee, etc. Policy/Program: Encourage joint grant applications that will offset the cost of the services. Policy/Program: Develop County resources to assist in mediation of potential conflicts between local governments, if requested. Objective: Work to ensure adequate funding for programs, including those mandated by the County, State and Federal Governments. Policy/Program: Continue to pass resolutions in support of or opposition to state and federal policies/programs. Policy/Program: Continue to work closely with state and federal legislators and agencies in order to provide input on programs required and the costs associated with these programs.

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Goal 2: Encourage economically responsible, shared services and facilities between units and levels of government. Objective: Consolidate services to the greatest extent possible in an effort to maintain or improve the quality of services, to streamline services, and to reduce overall governmental costs. Policy/Program: Explore privatization as a potential method of providing governmental services, if the same or enhanced level of services, can be provided at a lower cost. Objective: Explore how cost-sharing between municipalities and counties can provide a greater number of more efficient and effective services. Policy/Program: Sponsor an annual workshop on opportunities for and examples of shared services. Policy/Program: Review, as part of the County’s annual budgeting process, the opportunities to provide efficient and economical public facilities and services through cooperation with other units of government. Policy/Program: Identify existing conflicts in Sheboygan County between units of government and identify potential ways to resolve these conflicts.

Goal 3: Resolve land use planning issues, ordinance administration, and other boundary issue conflicts between communities in Sheboygan County. Objective: Promote consistent planning, land use, zoning, and design standards across municipal boundaries. Policy/Program: Continue to provide GIS data and mapping to local governments to aid in cooperative planning. Policy/Program: Continue to educate and inform local governments about cooperative boundary strategies (e.g. boundary agreements). Policy/Program: Continue to work with appropriate agencies in providing information on land-use related ordinances and programs to local governments. Objective: Promote and encourage compatible land use planning at municipal borders to help avoid land use conflicts between communities. Policy/Program: The County Planning Department and the UW-Extension will provide education and mediation services for boundary issues and agreements.

Goal 4: Strive to communicate and work with surrounding political entities, seeking ways to conduct joint planning and consider service agreements. Objective: Encourage intergovernmental service agreements when costs would be minimized and efficiencies maximized. Policy/Program: Continue to hold meetings with appropriate personnel/agencies to communicate possible areas for joint planning and service agreements. Policy/Program: Continue intergovernmental agreements and shared service between the County, Towns, and Villages to provide police protection through the Sheriff’s Department. Policy/Program: The County Highway Department shall continue to offer shared maintenance and construction services to local municipalities. Policy/Program: Continue the ambulance shared service agreements in the County. Policy/Program: Explore solid waste disposal shared services/contracts.

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CHAPTER 6 – UTILITIES AND COMMUNITY FACILITIES INTRODUCTION The type and quality of services communities provide is an important reason why people and business locate in a certain area. When desirable services are provided in a quality and cost- effective manner, the community’s long-term prosperity is fostered. However, many local communities are unable to provide the services or levels of service their residents and businesses demand. Therefore, they have come to rely upon cooperative agreements with neighboring communities or upon other units of government, such as the county or state, to meet such demands.

As communities grow and develop, so does their need for services. Some basic services, such as law enforcement, public health and safety, education, roads, and public improvements, are provided in all communities to one extent or another. Over time, as a community grows and changes, the level of existing services changes, often becoming more comprehensive, complex, and expensive, and new services are added. These new services often include public sewage treatment, solid waste disposal, recycling, public drinking water, and public recreation. Eventually, when enough communities begin to need a similar service or level of service, it can become cost-effective for a regional approach to the delivery of those services, and sometimes it is the County that can fulfill that role.

To maintain a high level of public services, the community must continually monitor, upgrade, and reevaluate their existing utilities, facilities, and services. This means that the County shall continuously evaluate its existing facilities and services to ensure their continued provision in the most cost-effective manner possible, consistent with the County’s and the local communities’ long-term goals, trends, and projections, as well as consider the elimination of unnecessary services and the provision of new services when necessary. The analyses and recommendations within this chapter of the County’s Comprehensive Plan are the first step in that process, and this plan shall be used to guide and direct, but not replace, detailed engineering studies, facility plans, and capital improvement programs. The level of accuracy of the referenced materials herein is highly subject to change (“time sensitive”) and should only be used as an initial guide and reference in establishing this plan’s initial land use needs. The individual municipalities’ plans should be used as guidance as well. As time goes on, the County shall again gather updated information regarding services as it looks to modify or improve them. In some cases, greater informational detail should be gathered before approving recommendations.

COUNTY OFFICIALS AND COMMITTEES County Board The Sheboygan County Board currently consists of 34 supervisors. This number will be reduced to 25 pursuant to Ordinance No. 25 (2006-2007), following the2012 election. The County Board creates their annual schedule of meetings in April of each year. The Board generally meets on the third Tuesdays of the month, but this varies by the month, so one needs to check the schedule to ensure the Board is meeting.

County Staff As stated earlier, Sheboygan County is one of the largest employers in the County with close to 1,000 employees. These employees work in 22 departments and administer over 200 programs.

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Hired and Contracted Professionals The County contracts with and hires professionals when a special task is needed that the County and its staff are unable to perform. This is the greatest case within the Highway Department. When road construction occurs, in many cases a private contractor is brought in to complete the project. The County may also elicit the help of contracted professionals for expertise in other particular areas or when renovations or remodeling is needed.

Planning, Resources, Agriculture, and Extension Committee This Plan was developed under the supervision of the Planning, Resources, Agriculture, and Extension Committee. This committee is made up of five members of the County Board. This Committee is charged with a wide variety of duties including providing oversight for the supervision, management, and control of the operations of the Marsh Park, Gerber Lakes, and other County-owned or operated public access to public waters and recreation trails. This committee oversees zoning and building ordinances, works as a liaison for register of deeds, provides oversight to the nonmotorized transportation pilot program, cooperates with the UW- Extension local staff, plus many other duties.

Comprehensive Plan Smart Growth Implementation Committee The Smart Growth Implementation Committee (SGIC) is made up of representatives from individual municipalities, technical experts for each of the nine elements required by WI State Statute, and citizens. This committee was designed to be a review body, as well as a link to the local municipalities. This Committee reviews documents and surveys and makes recommendations to the Planning, Resources, Agriculture, and Extension Committee.

Other Committees The County Board has nine standing committees the Executive, Finance, Health and Human Services, Health Care Center, Human Resources, Law, Planning, Resources, Agriculture, and Extension, Property, and Transportation Committees. Along with these committees, there are many subcommittees that make recommendations to the various County Board Committees.

UTILITIES INVENTORY AND ANALYSIS – PROVIDER, LOCATION, USE AND CAPACITY Electric Service Electric Service in Sheboygan County is provided by We Energies (a/k/a Wisconsin Electric Power Company), Plymouth Utility (WPPI or ATC), Sheboygan Falls Utility, and Alliant Energy. Overhead transmission lines are owned by American Transmission Company; there are 3 345 kV lines, three 138 kV lines, and on 69 kV line running through Sheboygan County. The electrical service to the County is thought to be adequate at this time for planning purposes, with recent utility upgrades being driven not as much by population growth as by the demand for energy. People are building larger homes and filling them with multiple electronic devices. We Energies, which is increasing its capacity by about 2-3% per year to keep up with demand throughout its service area, uses several different fuel sources to produce electricity: coal - 59.0%; purchased power – 30.7%; renewable – 2.6%; natural gas – 7.4%; and oil – 0.1%. Alliant Energy also is increasing capacity by about 3% a year to keep up with the demand; they are also increasing the amount of renewable energy they use to produce electricity.

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According to the American Transmission Company’s 20-Year Analysis for Zone 4 (which includes Sheboygan County), there are no significant limitations or upgrades planned for Sheboygan County. The ATC overhead transmission lines are shown on Map 6-1. Although there are occasional complaints from some residents, the electrical service to the County is considered adequate for current and future needs.

Natural Gas Natural gas service is provided by two companies: Wisconsin Public Service and WE Energies. Wisconsin Public Service provides natural gas for the Cities of Sheboygan, Sheboygan Falls, and Plymouth, the Villages of Elkhart Lake, Glenbeulah, Howards Grove, and Kohler, and the Towns of Herman, Greenbush, Mosel, Mitchell, Lima, Plymouth, Rhine, Russell, Sheboygan, Sheboygan Falls, and Wilson. One of WPS coal-fired plants is located on Lakeshore Drive in Sheboygan. It is the Edgewater plant and WPSC owns 31.8% of the plan. We Energies provides natural gas service to the Villages of Adell, Cascade, Cedar Grove, Oostburg, Random Lake, and Waldo and the Towns of Holland, Lyndon, and Scott. ANR Pipeline Company operates one of the major pipelines in the County. This pipeline is shown on Map 6-1. West Shore Pipeline is another major pipeline on the west side of Sheboygan County. There are two values on this pipeline in Sheboygan County. Natural gas service appears to be adequate for Sheboygan County.

Alternative Energy Sheboygan County has a few places where alternative energy is, or will be, used, as other municipalities work to regulate various forms of alternative energy. The City of Sheboygan has a methane digester that treats the sludge from the wastewater treatment facility. The Village of Cascade is planning on constructing one or two small wind turbines in order to power their wastewater treatment facility, with a possibility for expansion to power the whole Village in the future. The Public Service Commission regulates some wind turbines, but those under 100 mega watts are not regulated. Due to this gap in regulation, many municipalities within Sheboygan County have developed ordinances to regulate wind energy. Over 82 percent of survey respondents from Sheboygan County’s 2008 survey stated that Sheboygan County should explore sustainable energy sources, with wind and solar energy being the two types of energy sources residents want to encourage.

Public Water System There are two primary types of well systems in Sheboygan County: private and public.

Private wells are not part of a public water supply and each serves fewer than 25 people daily. They are usually wells that serve a single home, farmhouse, or small business with few employees or daily customers.

Public well systems are classified based on the numbers and frequency of their daily users. These classifications include: municipal systems (municipally-owned residential use), other- than-municipal systems (privately-owned residential use), nontransient noncommunity systems (no or very limited residential use with 25 or more employees or students 6-months every year), and transient noncommunity systems (little or no residential or employee use with 25 or more daily customers 60-days every year).

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[Map 6-1: Major Pipelines & Transmission Lines]

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The administrative code regulating public water systems varies, according to the type of public water system. The WDNR oversees construction and operation of public water systems to make sure everyone has safe water to drink and use. Owners generally have primary responsibility to monitor drinking water quality; however, in Sheboygan County the smallest public systems – transient noncommunity systems -- are sampled annually by the Sheboygan County Health and Human Services Department by contract with the Department of Natural Resources.

There are 212 public water supply systems in Sheboygan County. These systems include municipalities, churches, primary schools, colleges, restaurants, golf courses, factories, campgrounds, large and small businesses, and others.

Sheboygan County owns and operates 8 public drinking water systems ranging from the Rocky Knoll Health Care Facility providing long-term housing for the elderly to the Sheboygan County Airport to a variety of trailheads and campground facilities.

There are 15 municipal water systems within Sheboygan County. Table 6-1 lists the municipal water systems, if they have a wellhead protection plan, and if they have a wellhead protection ordinance. The majority of public water systems in the County have deep wells that use groundwater to supply residents with their water supply, but the Cities of Sheboygan and Sheboygan Falls and the Village of Kohler obtain their water supply from Lake Michigan.

Table 6-1: Municipal Water Systems Wellhead Wellhead Protection Municipal Water System Protection Plan Ordinance Adell Waterworks 3 Cascade Waterworks Cedar Grove Waterworks 3 3 Elkhart Lake Waterworks 3 3 Glenbeulah Waterworks Kettle Moraine Correctional Inst. 3 Kohler Waterworks No wells* No wells* Oostburg Waterworks 3 Plymouth Utilities Random Lake Waterworks Rocky Knoll Health Care Facilities Sheboygan Falls Utilities No wells* No wells* Sheboygan Town Waterworks 3 Sheboygan Water Utilities No wells* No wells* Waldo Waterworks Source: WDNR

Most towns in Sheboygan County do not provide a public supply of drinking water. In some of the private wells there have been contaminants found in the water during the testing that was completed by the UW-Extension. Groundwater is known to have some naturally occurring chemicals, and when levels reach a height that is unsafe to humans, drinking water

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contamination is a problem. Sheboygan County has never tested all private wells in the County, but the UW-Extension has worked to test individual wells and in some cases entire municipalities since 1993. The results from these tests are shown in Appendix 4. If a large area of groundwater becomes contaminated, municipalities and individual residents would need to find another source of drinking water. Due to the contamination of groundwater in areas of the County and nearby counties, municipalities may look to have a plan in place should something occur to contaminate their water supply. There are also areas within the County that require special casing of wells. These areas are in the Towns of Greenbush, Plymouth, and Sheboygan and are shown on Map 6-2. For further information on the requirements of the casing, citizens need to contact the WDNR.

The municipal public water systems are required to meet certain health standards. Additional information regarding the contaminants that are tested for by our public water systems, drinking water standards, answers to frequently asked questions, and how to obtain test kits can be found on the DNR's website at: http://www.dnr.state.wi.us/org/water/dwg/citizens.htm.

It appears that the public water systems within Sheboygan County are meeting these standards, as none of the systems have recorded a violation for contaminant levels in their consumer confidence reports, which can be obtained from the WDNR.

Looking at Table 6-2, in 2005, 24.94 million gallons of total water were used per day between groundwater and surface water. The use of groundwater since 1979 has increased by over 40 percent, while the use of surface water has only increased by 15.5 percent in that same time frame. Sheboygan County’s overall water use has increased by only 25 percent since 1979. While no formal hydrology study has been done in the County, estimates using data from the Southeastern Wisconsin Regional Planning Commission indicate residents and businesses within the County are using only 13% of the groundwater that is recharged to the aquifer each year (see pages 24-27 of Chapter 2 Natural, Agricultural, and Cultural Resources for more information). Therefore, the capacity of the aquifer is thought to be adequate for the County’s projected growth forecasts.

Table 6-2: Sheboygan County Water Use Sheboygan County Water Use by Year (millions of gallons per day) 1979 1985 1990 1995 2000 2005 Percent Change Surface-water use 12.27 13.85 13.85 15.13 16.01 14.17 15.5% Groundwater use 7.67 7.32 9.31 9.46 9.43 10.77 40.4% Total water use 19.94 21.17 23.16 24.59 25.44 24.94 25.1% Source: U.S. Geological Survey Water Use in Wisconsin reports for calendar years 1979, 1985, 1990, 2000, 2005.

Drainage Districts Drainage districts can provide effective drainage of large tracts of land through action of a board with the power to plan, purchase, repair, and construct drains within the bounds of its district and in some cases beyond the bounds of its district. There are two drainage districts in Sheboygan County: Belgium-Holland Drainage District #1 and Belgium-Holland Drainage District #2. These drainage districts do have taxing authority, but no taxes are currently assessed. Map 6-3 shows the boundaries of these drainage districts. It is thought that in future years, there may be a

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[Map 6-2: Well Casing Requirements]

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tax assessment. The records for this drainage district are held in Ozaukee County because the drainage district is located in both counties.

Sanitary Sewer Service and Sewer Service Area (SSA) There are 19 sanitary districts in the County, but one of the sanitary districts is actually the water district for the Town of Sheboygan. These sanitary district boundaries are illustrated on Map 6-3. There is also sewer service for the Cities of Plymouth, Sheboygan, and Sheboygan Falls and the Village of Kohler. The City of Plymouth provides these services through the Plymouth Utilities Commission. The Plymouth Utilities Commission provides these services to an area that includes the City of Plymouth and portions of the Town of Plymouth. The City of Plymouth may need to make improvements to the sanitary sewer systems over time, which includes expansion of inceptor sewers. The expansion of the sewer system depends on the growth of the City of Plymouth in the planning period.

A map delineating the boundaries of the Sheboygan Sewer Service Area (SSA) for 2015 is shown in Appendix 13. The City of Sheboygan, City of Sheboygan Falls, Village of Kohler, Town of Sheboygan, and Town of Wilson are serviced by one wastewater treatment facility, while there are four other wastewater treatment facilities located in the SSA. The City of Sheboygan wastewater collection system that is comprised of both separate sanitary and storm sewers. The sanitary sewers collect and convey domestic, commercial, and industrial wastewater generated within the city to the wastewater plant for treatment. The average depth of the sanitary sewers is 11 to 12 feet. Lift stations throughout the SSA are located in the Cities of Sheboygan, Sheboygan Falls, Village of Kohler, and the Towns of Wilson and Sheboygan. For more detailed information please see the SSA Plan from 1998, until the new plan is completed in 2009. Bay Lake Regional Planning Commission is working on an update to the 2015 Sheboygan Urbanized Area Sewer Service Plan; it is their hope this plan will be completed in 2009.

For more information please contact the clerks from the entities mentioned in the plan.

Wastewater Treatment Facilities The DNR regulates municipal and industrial operations discharging wastewater to surface or ground waters through the Wisconsin Pollutant Discharge Elimination System (WPDES) permit program. Sheboygan County has 16 municipal wastewater treatment facilities that are permitted WPDES program. These wastewater treatment facilities are listed in Table 6-3. There are also 18 industrial wastewater treatment facilities in the County.

Each year the municipal facilities are required by the WDNR to complete a Compliance Maintenance Annual Report (CMAR). The CMAR is a self-evaluation tool that promotes the owner's awareness and responsibility for wastewater collection and treatment needs, measures the performance of a wastewater treatment works during a calendar year, and assesses its level of compliance with permit requirements. Each of the municipal wastewater treatment facilities overall CMAR score is shown in Table 6-3. A score of a 4 means good and any response are voluntary, a score of a 3 means that the plant is satisfactory and the response remain voluntary; a score of a 2 means the plant is marginal, and recommendations need to be made, and a score of 1 or 0 is poor and fail and means action needs to be taken. Each wastewater treatment facility is graded in a multitude of areas, and if one receives a score of two or lower in an area, they need to

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[Map 6-3: Sanitary and Drainage Districts]

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report to the WDNR how they will remedy the problem. This means that just because an overall CMAR grade is 3.5, it does not mean that in one area, they may have received a one and in all other areas, they received fours. Table 6-3 also shows the facilities’ capacities, their average daily flows, and if upgrades are planned for the facility. Each facility undertakes facility planning, when expansions or upgrades are needed. As is seen in Table 6-3, about nine of the facilities are planning upgrades, but in many cases, these are minor. For more information on each individual wastewater treatment facility the local municipality or the facility should be contacted.

Table 6-3: Wastewater Treatment Facilities in Sheboygan County Plant’s Capacity, Average Max Wastewater Treatment Daily Flow Receiving CMAR* monthly Upgrades Planned Name (million waters (Year) design flow gallons/day) (million gallons/day) Cascade Wastewater .167 mgd .080 mgd N. Branch 2.64 Yes, a lagoon system Treatment Facility Milw. River (2007) Cedar Grove Wastewater .600 mgd .170 mgd Barr Creek 3.59 No Treatment Facility (2007) Gibbsville Sanitary .085 mgd .040 mgd Onion River 3.62 No District (2007) Howards Grove 1.6 mgd ~.360 mgd Pigeon River 4.00 Yes, different way to Wastewater Treatment depending on (2007) handle sludge Facility season Lakeland College .177 mgd No Fishers Creek 4.00 No information (2007) Northern Kettle Moraine .660 mgd .330 mgd Seepage 2.97 Yes, modification to Utility Commission Cells- (2007) how sludge is Recharge handled groundwater Onion River Wastewater .152 mgd .085 mgd Onion River 3.65 Yes, minor upgrades Commission (2007) e.g. increase capacity Oostburg Wastewater .281 mgd .240 mgd Black River 3.65 Yes, in planning Treatment Plant (2007) stages Plymouth City Utility 2.23 mgd 1.5 mgd Mullet River 3.59 No Commission Waste- (2007) water Treatment Facility Random Lake Village .450 mgd .237 mgd Silver Creek 3.89 Yes, handling of the (2007) sludge Scott Tn. Sanitary Ind. Septic .014 mgd Ground NA Yes, upgrade of District No1 Tanks & Water system Large Discharge Drainfield

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Plant’s Capacity, Average Max Wastewater Treatment Daily Flow Receiving CMAR* monthly Upgrades Planned Name (million waters (Year) design flow gallons/day) (million gallons/day) Sheboygan Wastewater 25.2 mgd 11.8 mgd Lake 3.69 Yes, for solid waste Treatment Plant Michigan (2007) handling Waldo Wastewater .210 mgd .060 mgd Onion River 3.90 Yes, a complete plant Utility (2007) upgrade by the end of 2010 WI DNR Long Lake .016 mgd .004 mgd, Seepage 3.82 No Recreation Area depending on Cells- (2007) Wastewater Treatment season Recharge Facility groundwater WI Doc Kettle Moraine .190 mgd No Melius Creek 3.03 No information information (2007) * These are the overall GPAs for the facilities. For grades on the individual parts of the CMAR, contact the WDNR Basin Engineer. Source: WI DNR and individual wastewater treatment facilities.

In fall of 2008, Sheboygan County was home to nearly 8,733 private on-site wastewater treatment systems (POWTS). This number will be over 9,000 by summer 2009. These systems include holding tanks, mound systems, seepage beds, etc. Sheboygan County regulates these systems through Chapter 70 of the County’s Sanitary Ordinance. A permit issued by the Planning Department is required for the reconnection of a private sewage system or for the installation of a non-plumbing sanitation system or for the replacement of piping associated with a private sewage system. All structures or premises in the County that are permanently or intermittently intended for human habitation or occupancy, which are not serviced by a public sewer, shall have a system for holding or treatment and dispersal of sewage and wastewater which complies with the provisions of Chapter 70. The private sewage system or non-plumbing sanitation system for newly constructed structures or structures requiring a reconnection permit shall be installed, inspected, and approved before the structure may be occupied. The ordinance also requires that the systems have maintenance every 3 years. This includes a site inspections and in many cases the pumping of the holding tank(s). During 2009, Sheboygan County is updating Chapter 70 of the County Code of Ordinances.

Wisconsin Public Service Commission (PSC) The Wisconsin PSC is an independent state agency that oversees and is responsible for regulating more than 1,100 Wisconsin public utilities that provide electricity, heat, water, combined water and sewer, and telecommunication services. The PSC works to ensure that, in the absence of competition, adequate and reasonably priced service is provided to utility customers. PSC approval is required before utilities can change rates or build large power plant and major transmission lines.

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Storm Water Management The WDNR’s ch. NR 216, Wis. Adm. Code regulates storm water and their related discharge permits. This code is in place to help meet regulations set by the federal Environmental Protection Agency (EPA). To meet the requirements of EPA's Storm Water Phase II Final Rule, the Wisconsin DNR drafted revisions to NR 216. These revisions amend an existing rule that outlines requirements for storm water discharge permits for municipal separate storm sewer systems, industrial facilities and construction sites. This rule increased the number of municipalities in Sheboygan County that must apply for a storm water permit, established associated municipal permit requirements, lowered the construction permit threshold to one acre from five acres of disturbance, and instituted a graduated fee structure to collect revenue from small and large municipal and construction sites. The Village of Kohler, Cities of Sheboygan and Sheboygan Falls, and the Towns of Sheboygan and Wilson already were covered under the pervious rule or had submitted individual permit applications to the WDNR, but this new rule added the Village of Howards Grove and Sheboygan County to the list. During the last decade, governmental agencies including many in Sheboygan have been active in curbing the negative impacts of stormwater pollution. Storm water pollution issues are being targeted and addressed by Federal and State statutes, and the provisions of county and community initiatives and ordinances. As part of a national effort to address the negative impacts of polluted runoff on the streams, rivers, and lakes, Sheboygan County, has formed a Clean Water partnership with the Cities of Sheboygan and Sheboygan Falls, the Villages of Howards Grove and Kohler, and the Towns of Sheboygan and Wilson. These municipalities have been working together to provide information and education to residents of the County, as well as working towards the goal of meeting the storm water requirements. Local municipalities may develop cooperative efforts to address stormwater managements issues in the future.

Sheboygan County has taken steps as part of this to map all County owned land and ditches that falls in the urban area, which requires a permit. The County has contracted out for modeling services to help show ways to improve storm water management. As part of these rules, the County will need to decrease the amount of suspended solid loading over time. This may include adding grass or other buffers to decrease the loading of suspended solids.

Sheboygan County also addresses erosion control and storm water management activities through Chapter 75 of County Code of Ordinances. This ordinance applies to erosion control and storm water management activities for unincorporated areas of the County, with a few exceptions, which are laid out in the ordinance. The Towns of Sheboygan and Wilson have more stringent ordinances than the County’s so these municipalities do not fall under the County’s jurisdiction The purpose of the storm water management ordinance is to diminish the threats to public health, safety, welfare, and the aquatic environment by limiting the rate of runoff and sediment loads discharged from development to waters of the State and regulatory wetlands in Sheboygan County. Sheboygan County’s Land and Water Conservation Department (LWCD) administers this ordinance. Projects that fall under the criteria are regulated by the ordinance, and need to apply for a permit from the LWCD. These projects are then approved/denied based on the steps the applicant is going to take to reduce erosion and storm water runoff. The LWCD staff complete site inspections and helps the applicants ensure they are reducing the erosion from their construction activities.

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The Sheboygan River Basin Partnership (SRBP) has worked to develop a storm water management plan for the Willow Creek Watershed. This is a five-mile stream that represents the only Lake Michigan tributary in Wisconsin with naturally reproducing chinook and coho salmon, and it is one of two Wisconsin tributaries to Lake Michigan with reproducing steelhead trout.

Solid Waste Disposal, Waste Pharmaceuticals Disposal, and Recycling Facilities The average person in Wisconsin generates 4.7 pounds of trash (residential and their share of commercial trash) each day and recycles 1.9 pounds of that trash per day. Most non-hazardous solid waste in Sheboygan County is either collected at a transfer station, drop-off center, recycling center or collected curb-side by a contracted private waste management company. Transfer stations are facilities where, for a fee, residents or municipalities may take their solid waste for collection by a privately-owned waste management service provider to be transported to a privately-owned solid waste facility and/or landfill. Drop-off and recycling centers are locations provided by a municipality where residents take their solid waste to be collected by a privately-owned waste management provider to be transported to a privately-owned solid waste facility, recycling center and/or landfill.

Most of the solid waste currently collected in the County is deposited in the Hickory Meadows Landfill in Chilton, located in Calumet County, in the Ridgeview Recycling and Disposal Facility in Whitelaw, located in Manitowoc County, or the Glacier Ridge Landfill in Horicon, located in Dodge County. These landfills receive solid waste from sources throughout the State of Wisconsin, but primarily from the counties in which they are located and the adjacent counties.

The Ridgeview Recycling and Disposal Facility is owned by Waste Management of Wisconsin and has three landfills. One of these landfills was closed 20 years ago, and a second is nearly full with less than a year of capacity remaining. The third landfill has a capacity of 10.16 million cubic yards (one cubic yard of compacted landfill averages 1,750 pounds in weight). As of May 2009, the landfill still has 10.16 million cubic yards remaining, or an estimated 14 and a half years of remaining capacity. The Cities of Sheboygan and Plymouth use this landfill, as well as, numerous villages and towns in the County.

The Hickory Meadows Landfill is owned by Veolia Environmental Services. The landfill has a capacity of 7.5 million cubic yards. As of June 2009, the landfill had 3.3 million cubic yards remaining. This capacity is predicted to last until approximately 2014, but Hickory Meadows has begun the process with the WDNR to request additional air space for expansion. It is thought that Hickory Meadows will expand by no less than an additional 7.5 million cubic yards.

The Glacier Ridge Landfill is also owned by Veolia Environmental Services. The landfill has a capacity of 9.2 million cubic yards. As of May 2009, the landfill had 8.2 million cubic yards remaining at its current use. In most cases, the solid waste from Sheboygan County goes to Veolia’s Hickory Meadows Landfill near Chilton.

Even though Sheboygan County’s municipalities manage their own solid waste disposal and recycling programs, the County does operate hazardous waste and waste pharmaceuticals drop off facilities. The hazardous waste drop off facility begin in 1995, when the County operated a

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site in Sheboygan twice a month. In 2008, the County began rotating collection of hazardous wastes between sites in Plymouth and Sheboygan, every other month. Some of the items that are collected are flammable liquids, florescent bulbs, acids and bases, poisons, antifreeze, old gasoline, household batteries, cleaners, and many other hazardous wastes. Waste electronics like computers and televisions are collected and deconstructed, with more than 98 percent of it being recycled. This helps people dispose of these hazardous wastes properly; without this program people might dispose of these wastes improperly.

In 2007, Sheboygan County started holding a collection for waste pharmaceuticals. This event is held in conjunction with the Crime Stoppers Fair in Sheboygan Falls the first Saturday in October. The County collects drugs from the surrounding communities, with law enforcement present, then law enforcement delivers the waste collected from all the outlying communities to Sheboygan Falls for analysis, co-mingling/separation, packing, and tracking. Veolia handles most of the collected medications for disposal by high temperature incineration out of state. Schedule 1 pharmaceuticals are taken to a Drug Enforcement Agency collection point by law enforcement where they are destroyed. In 2008, this program received 764.05 pounds of waste medications, 8.8 pounds of aerosols and inhalers, and 46.3 pounds of Schedule 1 drugs; this means Sheboygan County collected a grand total of 819.15 pounds of waste medications. These programs are funded through grants, partnerships with bordering counties, and by the property tax levy and are vital to protect Sheboygan County’s natural resources. The County is looking at having a permanent drop off location for waste pharmaceuticals.

For more information on the recycling and solid waste disposal for an individual municipality access http://www.co.sheboygan.wi.us/county_depts/planner/recycling/municipalities_recycling.htm, contact an individual municipality, or the waste management companies for their information.

Telecommunications Service Telephone Landline telephone service to county residents through a variety of carriers for both local service and long distance service. Some of the landline carriers include Verizon, AT&T, and TDS. Quality of service depends on the municipality and the location within the County. Some lines have been recently upgraded, while other lines are old and in poor condition.

As of 2008, there were 140 wireless towers throughout Sheboygan County. This does not mean there are actually 140 towers in the County, but one tower or location may host a multitude of carriers. These towers are owned by seven carriers: Cingular/AT&T, U.S. Cellular, Cellcom, Sprint/Nextel, Verizon Wireless, Bug Tussel, and Einstein Wireless. Map 6-4 shows the locations of the towers. Reception varies greatly, depending on location, topography, and the service provider. In many cases, if more towers are constructed or added, it will occur along transportation corridors. While the Federal Communications Commission allows municipalities discretion over the location of wireless towers, municipalities cannot ban towers altogether, as service must be provided; therefore, municipalities have limited influence on the overall approval of the towers.

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[Map 6-4: Wireless Towers & Cemeteries]

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Internet Internet accessibility also varies greatly throughout the County. Some residents are able to receive broadband internet service, through their phone or cable company, while in other portions of the County they rely on dial-up internet service. Some of the satellite companies are providing high-speed internet access to subscribers. Many residents feel that availability of high- speed internet is inadequate and are unhappy with the options they are given. Due to new technologies, however, this is likely to change in the next few years. A new broadband technology is slowly emerging in fixed wireless networks. Wireless antenna sites (which are lower and less obtrusive than cellular antennas) would be capable of serving fixed location subscribers with broadband transmission rates up to 2.5 megabits per second over a 2.5-mile radius. A single site could potentially serve up to 200 users — both residential and small enterprise. It is also possible that broadband will become more common because of the new programs that are being implemented at the federal level.

It is also possible to construct fixed wireless networks from standard equipment of the WiFi or WiMAX variety, the latter of which is eventually scheduled to transmit as far as 45 miles from an antenna base station. So far, such networks have been limited to the small coverage areas of WiFi equipment, but as WiMAX equipment becomes available, such networks may be expected to increasingly be deployed. Fixed broadband wireless systems are particularly viable in rural and other low-density population areas where DSL or cable broadband service is not available.

Television Television access varies greatly throughout the County. Most residents who live in the three cities and most of the villages have access to cable, satellite, or antenna television. Many residents in the rural parts of the County only have access to television through satellite or antennas, but cable is slowly expanding to rural areas. Some areas of the County receive signals from Milwaukee, some receive signals from Green Bay, and others receive signals from both media markets. Some residents do not think the limited service available to them is adequate.

Road and Other Maintenance Sheboygan County’s Highway Department completes the road maintenance for all County Trunk Highway (CTHs), all State Highways, and many of the local roads. Many municipalities contract with the County for their road maintenance. The County Highway Department has various locations throughout the County. The County Highway Administration Building & Repair Shop is located in the City of Sheboygan at 1211 N 23rd Street. The Highway Department then operates six satellite locations: North Side Shed, South Side Shed, Adell Shed, Cascade Shed, Elkhart Lake Shed, and Plymouth Shed. The County also operates an asphalt plant in the Town of Greenbush. The asphalt plant produces material for Calumet, Fond du Lac, and Manitowoc Counties. In 2008, about 20 percent of the asphalt produced, or 89,282 tons, was used for external (out-of-county) customers. The County’s asphalt plant provides critical material for the Department’s construction and maintenance activities on the County and local roads. The County also operates five gravel pits and owns four of them. These gravel pits are in the Town of Greenbush, Mitchell, and Plymouth. When the project is too large or out of the County’s capabilities outside contractors will be hired. In 2008, Virchow Krause & Company completed a Operational Diagnostic Analysis of the Sheboygan County Highway Department. This analysis was completed on the highway department’s operations and shed locations. The analysis has

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been presented to the Transportation Committee of the County Board, but no decisions have been made on which recommendations will be implemented.

Sheboygan County’s Building Service Department is charged with the responsibility for the maintenance and upkeep of the courthouse, courthouse annex, law enforcement center, detention center, administration building, human services building, Taylor Park, agricultural building, and the museum. There is also maintenance staff for Rocky Knoll. Staff maintains the cleanliness and appearance of the County offices and service areas, establish the requirements for the expansion, modernization, or replacement of equipment and/or facilities, and evaluate, develop, and control capital projects related to systems modernization, equipment replacement, or new facility construction. The County does not have a facilities plan, but there are two buildings that the County owns that are sometimes discussed for replacement. These include the main highway building and the Health and Human Services Buildings. These buildings are discussed for replacement because of their age and size limits.

COMMUNITY FACILITIES AND SERVICES Administrative Facilities Sheboygan County has a wide variety of locations and facilities that help to serve the citizens of Sheboygan County. Many of the County’s facilities are located within the City of Sheboygan. There is the County Administration Building, which is located in Sheboygan at 508 New York Avenue, as well as the County Courthouse located at 615 N. 6th Street in Sheboygan. The Sheriff’s Department building is located at 525 N. 6th Street, Sheboygan. Health and Human Services Department has two locations in Sheboygan. One is located at 1011 N. 8th Street, while the health and human service annex is located at 821 N. 8th St., 2nd Floor, Sheboygan. The County has plans to relocate from the health and human service annex in 2009 to the agriculture building in Sheboygan Falls. The Sheboygan County Job Center Building is located at 3620 Wilgus Avenue, Sheboygan. The main Highway Administration Building is located in Sheboygan on N. 23rd Street, as was stated earlier in the Chapter. In 2008, Sheboygan County’s UW-Extension relocated to the University of Wisconsin-Sheboygan Campus located at 5 University Drive, Sheboygan. The County Museum is open from April 1 through October 30 and is located at 3110 Erie Avenue, Sheboygan. Beginning sometime in 2009, the agriculture building, located at 650 Forest Avenue, Sheboygan Falls, will house the Health and Human Services Division on Aging and the Aging and Disability Resource Center. Sheboygan County Memorial Airport is located in the Town of Sheboygan Falls as N6180 Resource Drive, Sheboygan Falls. With the diverse number of programs and services Sheboygan County offers, there is a need for these facilities to adequately meet the needs of the citizens.

Postal Service There are 14 post offices in the County. All cities and villages in the County have a post office, except for the Village of Howards Grove, which utilizes the City of Sheboygan Post Office. The unincorporated areas of Hingham and Greenbush also have post offices. These post offices are adequate for the County and are listed in Table 6-4.

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Table 6-4: Post Offices in Sheboygan County Postal Post Office Codes Location 53001 Adell 53011 Cascade 53013 Cedar Grove 53020 Elkhart Lake 53023 Glenbeulah 53026 Greenbush 53031 Hingham 53044 Kohler 53070 Oostburg 53073 Plymouth 53075 Random Lake 53081 53082 Sheboygan 53082 53085 Sheboygan Falls 53093 Waldo

Law Enforcement The Sheriff's Department serves Sheboygan County, its citizens, and visitors. Offering twenty- four hour law enforcement services, the Sheboygan County Sheriff's Department is one of the largest and busiest departments in the area. With over 120,000 full-time residents, countless commuters, and visitors every day, the Sheriff's Department does all it can to ensure those people enjoy a safe and memorable experience in the County. The Sheboygan County Sheriff’s Department consists of approximately 180 men and women who provide an array of law enforcement and correctional services to the citizens of Sheboygan County. The 2007 budget was slightly over $15 million for the Sheriff’s Department.

The Sheriff’s Department is broken down into five divisions: patrol services, criminal investigations, corrections, civil process and court security, and telecommunications Some of the patrol division’s duties include traffic law enforcement, traffic accident investigation, criminal investigation, first responders, public speaking, and many other tasks. The criminal investigation division includes interviewing witnesses and suspects, searching persons, property and crime scenes, crime scene supervision, developing and working informants, and other duties. The corrections division includes inmate booking, strip searching inmates, inmate observations, inmate meals, inmate discipline, and other duties pertinent to the job. The civil process division is responsible for serving legal papers such as subpoenas, criminal complaints and summons, restraining orders, and other various papers, transporting inmates for court, warrant pickups, medical transports, sheriff foreclosure sales, and providing for the safety and protection of the courts, employees, and visitors. The telecommunications division is responsible for the Communication Center, which is staffed 24 hours a day by highly trained personnel. They handle all cellular 911 calls in the County, and 911 calls outside of the City, route the calls to the appropriate agencies, and dispatch the appropriate personnel. In the future, the City of

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Sheboygan and Sheboygan County may consider streamlining the dispatch services to one location for the entire County. Although this system is considered adequate, the Department is working to implement a Wireless 911 system that will add more functionality and flexibility.

Within each of these divisions there are many “Special Teams or Programs” such as: the K-9 Unit, S.W.A.T. (Special Weapons and Tactics) Team , Boat and Dive Teams, Crisis Negotiators, Drug Unit, Snowmobile, A.T.V., and Bicycle Patrols, Honor Guard Unit, CounterACT Officers, Awards Committee, Specialized Unified Tactics Instructors, Neighbor Watch, and Citizens Academy Instructors. These programs and teams all help to better serve Sheboygan County. Members of these units receive advanced training in their specific field. The City of Sheboygan Police Department has motorcycle patrols.

The Department, which is currently allowed to have 39 deputies, anticipates having adequate manpower for the next few years, although cuts in shared revenues might create challenges. The traditional Wisconsin standard for police protection is 1.86 officers/1,000 persons. Based on 2008 population estimates of villages and towns in Sheboygan County relying on the Department, the County had 0.85 officer/1,000 persons. While this is well below the standard, the Sheriff’s Department does have back-up assistance available through mutual aid agreements. Moreover, the Sheriff’s Department annually evaluates its personnel needs based on actual caseload and response times. Using these more specific standards, the Department believes it is providing necessary coverage to the County and is committed to maintaining that protection.

The Sheriff’s Department makes regular patrols throughout the County, but has contracts with certain municipalities for extra patrol services. There are six law enforcement agencies in the County. Besides the County Sheriff’s Department, the Villages of Elkhart Lake, Kohler, and Cascade, and the Cities of Plymouth and Sheboygan Falls have their own police departments. The Village of Cascade Police Department also provides police protection to the Villages of Adell and Waldo and the Town of Lyndon. These police departments work together to provide law enforcement services to the entire County. Members of the police departments take training courses together as well as work together to provide the best possible police protection for the County and its residents.

The Sheboygan County Sheriff’s Department utilizes several correctional facilities. The Sheboygan County Jail is located on the second floor of the Sheboygan County Law Enforcement Center, located on North 6th Street in the City of Sheboygan. The Jail is a 40-bed facility that primarily houses adult female inmates. The Sheboygan County Detention Center, located on South 31st Street in the City of Sheboygan is a 286-bed facility that houses adult male inmates. The Juvenile Detention Center, also located on the second floor of the Sheboygan County Law Enforcement Center, is a 27-bed facility that houses both male and female juvenile inmates. These capacities are currently sufficient; in fact, the County often houses inmates from other counties and the state. In the next few years, there is a possible expansion for the County Detention Center. This expansion would add a third and fourth floor to the current facility and also double the capacity of the facility.

Sheboygan County is also home to the Kettle Moraine Correctional Institute, located in the Towns of Greenbush and Mitchell. This is a medium security facility operated by the Department of Corrections. It is 80 acres in size and has an operating capacity of 783, but in

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2008 housed an average of 1,178 inmates on a daily basis. A variety of programs are available for the inmates in industry, vocational, and academic training or education.

In 2008, 11 local towns also exercised the role power of a town constable. Per s. 60.22(4) of the Wisconsin Statutes, the Town Constable is responsible for enforcing local ordinances and issuing citations for ordinance violations. The Constable may also assist in a multitude of ways during emergencies. In some cases the constables are elected and in other cases they constables are appointed.

Emergency Services The County, except the City of Sheboygan, is served by the 9-1-1 system that is routed through the Sheboygan County telecommunicators and relayed to emergency services. Telecommunicators set off tones to activate the paging system for all the first responder units in the County.

Fire services in Sheboygan County are provided on an individual community basis or are obtained through contracts with neighboring communities. There are 26 fire departments in Sheboygan County, of these, 25 are staffed with volunteer fire fighters. Map 6-5 shows the fire department boundaries in Sheboygan County. Mutual aid is provided, if asked for by the municipalities.

The City of Sheboygan is the only full-time fire department in the County. The Sheboygan Fire Department has staffing levels between 18 and 23 people for fire/rescue emergency operations 24 hours a day, 7 days a week. In January 2008, the City began providing ambulance service to City residents as well. The Sheboygan Fire Department and EMS service operate out of the five fire stations. These stations are located throughout the City.

There are seven ambulance providers serving Sheboygan County residents. These are the Orange Cross, Random Lake, Oostburg, Kiel, Plymouth, Mt. Calvary, and Sheboygan Fire Department Ambulance Services. The ambulance service boundaries are shown in Map 6-6. Orange Cross Ambulance Service will also transport patients in the City of Sheboygan as well as Sheboygan’s Ambulance Service.

The level of fire and rescue service varies greatly from community to community. This variability can be seen in the fire insurance ratings issued for local communities by the Insurance Services Office (ISO). Based upon their countrywide Public Protection Classification Program, Sheboygan County communities range from a Class 3 for the City of Sheboygan to a Class 9 and Class 10 for parts of some rural towns. Many of the fire departments received split classifications. This is because all properties within 1,000 feet of a water supply (usually a fire hydrant) and within five road miles of a fire station are eligible for the first class (classes 1 through 8). Properties more than 1,000 feet from a water supply but within five road miles of a fire station are eligible for a class 9. All properties more than 5 road miles from a fire station are class 10. This classification system is used to help establish fire insurance premiums for residential and commercial properties, although some insurance companies use their own system of measure. Many but not all of these differences can be attributed to differing population levels, population densities, land uses, distance covered, etc.

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[Map 6-5: Fire Departments]

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[Map 6-6: Ambulance Service]

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To receive a rating of a class 1 through 8 the community's fire-protection system must include a dispatch center, a fire department, and a water supply, all of which meet the criteria for credit under ISO's Fire Suppression Rating Schedule (FSRS). Table 6-5 shows the ISO ratings for the County’s fire departments.

Table 6-5: ISO Ratings Municipality/Fire Department/Fire ISO Municipality/Fire ISO Protection Area Rating Department/Fire Protection Area Rating Ada FD 07/10 Oostburg FD 05/10 Adell 05 Plymouth 04 Beechwood FD 07/10 Plymouth FD 04/09 Cascade 06 Random Lake 04 Cascade FD (Towns of Mitchell and Lyndon) 07/10 Random Lake FD Area 04/8B Cedar Grove 04 Rhine TS 09/10 Elkhart Lake 04 Scott TS FDS (Batavia FD) 07 Franklin FD 09 Sheboygan 03 Glenbeulah 06 Sheboygan Falls 04 Greenbush FD 09/09 Sheboygan Falls TS FDS 06 Haven FD (Town of Mosel) 09/09 Sheboygan TS FD 05/09 Holland TS Adell FPA 09/10 Sherman TS Adell FPA 09/10 Holland TS Cedar Grove FPA 06/10 Sherman TS FDS 1 (Batavia FD) 07 Howards Grove 06 Silver Creek FD 09 Howards Grove FD 06/10 St Anna FD Area (Russell) 07/10 Johnsonville 09/09 St. Cloud FD Area (Russell) 05/09 Kohler 05 Waldo 05 Lima TS FDS 1 06 Waldo FD (Lyndon and Lima) 05/09 Oostburg 05 Wilson TS Black River FPA 07/10

According to the insurance service office, generally, urban density development should be located within 1.5 miles of a fire station, while one- and two-family homes with at least 100-foot separation should be located within four miles of a fire station. The recommended 1.5-mile and four-mile service radii are shown on Map 6-5. Much of the County is located within the recommended service radius of an existing fire station. Every fire department should strive to provide the best and most appropriate level of service possible in a cooperative, cost-effective, and efficient manner; studies of this issue may be periodically undertaken, so that an appropriate level of service is maintained. Each fire department should conduct periodic needs assessment studies to determine if the department has sufficient firefighters, equipment, water supply, and facilities to adequately protect the communities they serve. A possible study may involve assessing the need for professional personnel versus volunteer or paid-on-call personnel, as well as the use of existing and potential shared-service agreements. The fire departments in the County may also look into regional fire protection over the course of the planning period.

First Responders There are two levels of first responders in Sheboygan County. The first are individuals throughout the County, many of whom are trained in first-aid, CPR, and Automatic External

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Defibrillators, and are involved in many walks of life, and could, if necessary react in situations where a victim has stopped breathing or support an emergency. This group of people works with or without an allegiance to any particular group. The second level of first responders consist of some law enforcement personnel, fire department personnel, and volunteer organizations who are certified Medical First Responders. Individuals at this level shall be trained through a designated First Responder Training Course. First responders provide immediate care to victims of trauma and illness. First responders in rural communities provide vital care and decrease response time to an emergency scene. For more information on the first responder units contact Sheboygan County Emergency Management or access Sheboygan County’s Emergency Medical Services Plan. Many times these first responder units are made up of volunteers. There are 14 state licensed first responder units in Sheboygan County. The first responder units in Sheboygan County are listed in Table 6-6, and shown in Map 6-7.

Table 6-6: Sheboygan County First Responder Units First Responder Unit First Responder Unit Adell Fire Department First Responder Unit City of Sheboygan Falls Fire Department First Responder Unit Aldrich Chemical First Responder Unit City of Sheboygan Fire Department Batavia Fire Department First Responder Unit Town of Sheboygan Falls Fire Department First Responder Unit Cascade Fire Department First Responder Unit Village of Elkhart Lake First Responder Unit Cedar Grove Fire Department First Responder Town of Sheboygan Fire Department First Unit Responder Unit Howards Grove First Department First Kohler Police Department/Village of Kohler Responder Unit EMS Glenbeulah Fire Department First Responder Town of Wilson First Responders Unit

Education Higher Education There are two higher education facilities in Sheboygan County, with a third main campus nearby. Lakeland College Lakeland College is a four-year liberal arts institution, which is fully accredited by the North Central Association of Colleges and Schools. The primary campus area is located a few miles west of the Village of Howards Grove at W3718 South Drive in the Town of Herman. The independent college is closely tied to the United Church of Christ. Lakeland’s academic divisions consist of business administration, education, natural sciences, creative arts, humanities, and social sciences.

The most immediate issue the college is facing is the need for a new well to supply the campus area. Currently, Lakeland utilizes private well and sewer treatment systems. The Wisconsin Department of Natural Resources, with whom campus officials are working diligently to rectify the identified deficiencies, issued the directive recently.

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[Map 6-7: First Responder Units]

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Long-range issues campus officials are anticipating revolve around Lakeland’s 150th Anniversary in 2012. The administration is targeting this date as an opportunity to expand enrollment figures at the campus. It is anticipated that both residential halls and academic facilities will be incorporated as part of future development plans. The residence halls are at capacity and academic halls are equally full.

A thorough facilities analysis will be performed in the near future to identify the areas in most need of improvement and expansion. Once the specific needs and target areas have been identified through the study, Lakeland officials will move from current conceptual planning to a more concentrated approach. It is imperative that surrounding communities and their designated officials engage in regular discussions with the campus administration to stay apprised of development plans.

Since the campus is physically located in Herman, the Town could be affected by Lakeland’s future development. The most significant impact the Town may experience is from potentially increased commuter traffic volumes on surrounding streets and county trunk highways.

UW-Sheboygan UW-Sheboygan is located in the City of Sheboygan and is one of the 13 freshman and sophomore campuses of the University of Wisconsin Colleges. UW-Sheboygan allows students to earn their Associate Degree in the Arts and Sciences and easily transfer to another UW system school in order to finish their bachelors degree through the guaranteed transfer program.

UW-Sheboygan offers a Bachelor of Science – Engineering in conjunction with UW-Platteville, a Bachelor of Arts in organizational administration, communication, and information resources in conjunction with UW-Milwaukee, a Bachelor of Science in Management in conjunction with UW-Stout, and a Bachelor of Education in conjunction with UW-Oshkosh. These programs are taught online, on UW-Sheboygan Campus, through distance education, or other means. It also offers a few Masters Degree of Science in Education classes in conjunction with UW- Oshkosh. UW-Sheboygan also boasts one of the lowest tuitions in the UW System.

UW-Sheboygan has about 750 students, with close to 500 being full-time equivalencies. There are 16 full-time professors and 34 part-time lecturers. The average class size is 23 students.

This liberal arts education will give people the foundation they need to excel at a four-year institution and helps build the skills people need for life-long learning.

Lakeshore Technical College Lakeshore Technical College (LTC) offers 89 career programs including associate degrees, technical diplomas, technical certificates, and apprenticeship programs. In addition, LTC offers distance learning, customized training to business and industry, and continuing education opportunities.

The main campus is located in the Village of Cleveland just north of the boundary between Sheboygan and Manitowoc Counties. LTC has additional sites in Manitowoc and Sheboygan, with outreach centers at area high schools in Kiel, Manitowoc, Mishicot, Oostburg, Plymouth,

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Random Lake, Reedsville, Sheboygan, Two Rivers, and Valders. It also has 33 distance learning sites.

On average, 73% of LTC graduates work in the LTC District which includes Manitowoc and Sheboygan Counties and parts of Calumet and Ozaukee Counties. LTC is accredited by the Higher Learning Commission, a Commission of the North Central Association of Colleges and Schools.

For more information on Lakeshore Technical College, go to gotoltc.edu/index.shtml.

UW-Extension The UW-Extension extends the knowledge and resources of the University of Wisconsin to people where they live and work. The UW-Extension runs a variety of programs throughout the state. Sheboygan County’s UW-Extension is located in a recently remodeled space on the campus of UW-Sheboygan. The program areas include agriculture, community and economic development, family living, horticulture, nutrition education, and 4-H youth development. The UW-Extension staff work with local citizens on a variety of programs. One of the largest programs is the 4-H Program. In 2000, Sheboygan County 4-H had 1,171 enrolled members ranging from 6 years old to 19 years old and 43 4-H clubs. The agricultural programs are offered not only in crops and agronomy, but also in dairy and livestock. The family living programs for the UW-Extension respond to community needs with research-based education and partnerships that support Wisconsin families and communities. These programs include food and nutrition programs, family relationship programs, parenting, and family economic programs.

Another popular program is the master gardeners program. This program is made up of individuals who have an interest in horticulture, have taken Master Gardener training offered by UW-Extension and share their time and expertise with others. The purpose of the Wisconsin Master Gardener Program is to provide unbiased, research-based horticultural information to the citizens of Wisconsin through Master Gardener volunteers. Master Gardeners receive training in horticulture through the University of Wisconsin Extension. In return for their training, Master Gardeners volunteer in UW-Extension horticulture programs and projects, which enhance the community (e.g. landscaping on the County’s Old Plank Road Trial).

The community, natural resources, and economic development programs of the Cooperative Extension helps Wisconsin residents build strong communities, attract and keep jobs, and balance growth and environmental quality. Backed by University of Wisconsin research, Extension educators work with local governments, civic organizations, businesses, and community leaders to help people identify critical local concerns, set goals, and work on solutions.

These facilities are thought to be adequate for Sheboygan County.

K-12 Schools There are 13 public school districts and many private schools in the County. Table 6-7 provides a listing of these schools as well as enrollment from the 2007-2008 school year and a website

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where more information can be found on the school. The largest public school district by enrollment figures in the Sheboygan Area School District (SASD) with nearly 10,450 students. The SASD is also about the ninth largest school district in the state based on enrollment data. The smallest public school district by enrollment figures is the Elkhart Lake-Glenbeulah School District with only 514 students. The public school district boundaries are shown on Map 6-8.

Table 6-7: K-12 Schools in Sheboygan County Schools Total Enrollment Website 2007-2008 Public Schools Campbellsport* 1,448 http://www.csd.k12.wi.us/ Cedar Grove-Belgium 1,071 http://www.cedargrovebelgium.k12.wi.us/ Elkhart Lake-Glenbeulah 514 http://www.elgs.k12.wi.us/ Howards Grove 989 http://www.theclasslist.com/hgsd Kewaskum* 1,985 http://www.kewaskumschools.org/ Kiel* 1,497 http://www.kiel.k12.wi.us/ Kohler 612 http://www.kohler.k12.wi.us/ New Holstein* 1,131 http://www.nhsd.k12.wi.us/ Oostburg 958 http://www.oostburg.k12.wi.us/ Plymouth 2,444 http://www.plymouth.k12.wi.us/ Random Lake 956 http://www.randomlake.k12.wi.us/ Sheboygan 10,445 http://www.sheboygan.k12.wi.us/ Sheboygan Falls 1,776 http://www.sheboyganfalls.k12.wi.us/ Private Schools Sheboygan County Christian High 157 http://www.scchs.com/ School Sheboygan Lutheran High School 220 http://www.lutheranhigh.com/ Bethlehem Lutheran School, 167 http://www.ourbethlehem.com/ Sheboygan Christ Child Academy (Elem.to 155 http://christchildacademy.com/ middle school) Ebenezer Christian School 11 N/A Faith Christian Academy 30 http://fbcwi.com/fca/FaithChristianAcad.php Holy Family 187 http://webpages.charter.net/hfs_school/ Immanuel Lutheran School 62 http://www.immanuelsheboygan.com/ Willowglen Academy -North 37 http://www.phoenixcaresystems.com/wi/north.php Oostburg Christian School 193 www.oostburgchristian.com Our Lady of the Lakes 101 http://www.ourladylakes.org/ Sheboygan Christian School 194 http://www.sheboyganchristian.com/ St. Dominic Elementary School 136 http://www.stdominic.us/school/index.php St. John-Baptist Elementary 278 http://www.sjbplymouth.org/school_home.html School St. John Lutheran School, 179 http://www.stjohnplymouth.org/ Plymouth St. John Lutheran School, 83 http://www.stjohnrandomlake.org/ Random Lake

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Schools Total Enrollment Website 2007-2008 St. Mary’s Grade School, 83 http://www.blessedtrinityparish.org/St%20Mary/st Sheboygan Falls maryschool.htm St. Mary’s School, Cedar Grove 38 N/A St. Paul’s Lutheran School, 72 http://www.stpaulshowardsgrove.org/ Howards Grove St. Paul’s Lutheran School, 97 http://www.sheboyganstpaul.com/ Sheboygan Trinity Lutheran School 141 http://trinitysheboygan.org/ Home-Based Private Education ~518** Total Enrollment 22,904*** * These school districts are not headquartered in Sheboygan County, but some residents of Sheboygan County attend schools in these districts. **Home-Based Private Education Enrollment does not include home-based students from the Campbellsport, Kewaskum, Kiel, or New Holstein School Districts. ***Total Enrollment does not include the enrollment numbers from the Campbellsport, Kewaskum, Kiel, or New Holstein School Districts because most of the students in these districts are not Sheboygan County residents. Source: Wisconsin Department of Public Instruction, Enrollment Data

It is likely that individual schools and districts will continue to have periodic renovations, expansions, and/or consolidations. For the most part, each school district has managed its needs independently from the County, and it is expected this will continue. Given the wide choice of private and public facilities in the area, education options for school-aged children within the County appear to be more than adequate for the planning period.

Library Sheboygan County is home to eight libraries distributed throughout the area (Table 6-8). The largest library is the Mead Public Library located in the City of Sheboygan. These libraries work together with other libraries in the Eastern Shores Library System for book sharing and book mobile services.

Table 6-8: Public Libraries in Sheboygan County Library Name Location Library Name Location Cedar Grove Public Cedar Grove Mead Public Library Sheboygan Library Elkhart Lake Public Elkhart Lake Oostburg Public Oostburg Library Library Kohler Public Library Kohler Plymouth Public Plymouth Library Lakeview Community Random Lake Sheboygan Falls Sheboygan Falls Library Memorial Library

Eastern Shores Library System was founded as a multi-county federated public library system in 1987. There are thirteen member libraries in the System -- 5 in Ozaukee County, 8 in Sheboygan County. Mead Public Library, in Sheboygan, serves as the resource library for the System.

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[Map 6-8: School Districts]

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The System covers 741 square miles, and serves a 1998 estimated population of over 191,000 persons. The services provided by Eastern Shores and its Member Libraries are for all persons in Sheboygan and Ozaukee Counties to enjoy. Any person in the two counties has the right to use any of the thirteen libraries.

A van delivery service between the libraries and the System office allow you to return books and other materials to any convenient member library. Inter-Library Loan makes it possible for you to receive materials and information from other Wisconsin Libraries. In addition, Eastern Shores has reciprocal agreements with other Wisconsin public library systems, allowing you to check out materials at other libraries when you are on vacation.

During 2001, Eastern Shores implemented EasiCat, an online-shared automated catalog of all of the items owned by all of the libraries and the bookmobile. Customers can go to any library and view all of the items, place holds on items, and have them delivered to the library that is the most convenient. Customers with Internet access can perform the same functions at home, school, or place of business twenty-four hours a day, seven days a week.

Finally, Eastern Shores operates the Bookmobile, which serves many of the communities in Sheboygan and Ozaukee Counties that do not have libraries.

Sheboygan County’s Board of Supervisors adopted the Plan for County Library Service in Sheboygan County 2006-2010 in 2005. This plan contained some recommendations for the library system. Some of the highlights are:

• Membership on the Eastern Shores Library System Board is determined by the proportion of the county's population to the population of the entire system, which includes Sheboygan and Ozaukee counties. • All public libraries in the system will provide service to residents who live in areas not served by a municipal library. Each public library will be reimbursed for the service it provides to non-libraried residents at no less than 85% of the library's operating cost for serving them. The reimbursement level will grow to 90% by 2010. • The Eastern Shores bookmobile will continue to serve non-libraried areas of the county. The proportion of use by Sheboygan County to the total use of the bookmobile will determine the funds that will be appropriated by the county. • There are no recommendations on a county library district, a consolidated county library service, and creating joint libraries in non-libraried municipalities. • No operational standards will be established because the public libraries in the county currently meet or exceed the basic level of standards for providing library service. • The county will contract with Eastern Shores Library System to administer the plan. • The plan will be reviewed and revised during 2009 and Ozaukee County should be invited to participate. • The Committee should include at least seven members representing libraried residents, non- libraried residents, and urban residents from different geographic areas of the county.

As was stated in the 2005-2010 plan, the public libraries are meeting or exceeded the basic level of standards for providing library service to County residents. Now that 2009 has arrived,

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Sheboygan County is holding to its recommendation of working with Ozaukee County on its next Library Service Plan. Sheboygan County has formed a committee jointly with Ozaukee County and the 2011-2015 Plan for County Library Services will be presented at the County Board in December 2009.

Health Care Public Health Division The Division of Public Health for Sheboygan County “promotes conditions in Sheboygan County in which people can be healthy.” The Division has a wide variety of statutory and community responsibilities. The Division handles communicable disease control, human hazard abatement such as childhood lead poisoning, tobacco education activities, refugee health screening, immunizations, WIC (Women, Infants, and Children) health and nutrition, facility licensing and inspections, and prenatal care coordination. The Division of Public Health, as part of the facility licensing and inspections, checks food handling guidelines and restaurant inspections. The Division of Public Health also handles beach testing and is in charge of beach closures due to public health risks.

Private Health Facilities The County has two hospitals located in the City of Sheboygan.

Aurora Sheboygan Memorial Medical Center is located on North 7th Street in the City of Sheboygan, the medical center consists of a staff of physicians that provide services in more than 25 specialties, including obstetrics, pediatrics, orthopedics, surgical services, emergency services, rehabilitation medicine, cancer treatment services, etc.

St. Nicholas Hospital is located on North Taylor Drive in Sheboygan, St. Nicholas is a Catholic full-service community hospital that provides services in specialties such as: cancer, cardiac, and diabetes care; emergency services; home health; maternity; medical/surgical services; orthopedics and sports medicine; pain management; rehabilitation; and renal dialysis.

Sheboygan Surgery Center is a partnership between a group of surgeons and St. Nicholas Hospital. The Sheboygan Surgery Center was Sheboygan County’s first, new construction, multi-specialty freestanding surgery center. This center performs many types of outpatient surgeries including gastrointestinal, pain management, urological general surgery, orthopedic, hand, ophthalmologic, plastic/cosmetic, foot, ear, nose, and throat (ENT), gynecological, oral, and other surgeries.

Aurora Surgery Center in Plymouth operates outpatient surgery services performed by an Aurora Sheboygan Clinic surgeon, anesthesia, and surgical nursing staff shared between Aurora Surgery Center and Aurora Sheboygan Memorial Medical Center. Outpatient procedures include hand, wrist, arm, knee and shoulder arthroscopy, cataract surgery, tonsils, adenoids, ear, nasal, and sinus surgery, gallbladder and hernia surgery, reconstructive and cosmetic plastic surgery, gastrointestinal scope procedures, including colonoscopy, as well as other types of surgery. There are various clinics and other health care facilities scattered throughout the County.

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There is also a Visiting Nurse Association (VNA) in Sheboygan County. The Aurora VNA provides home healthcare to Sheboygan County. It provides home healthcare for patients of all ages, from infants to elderly. The nurses are the educators of disease prevention and health promotion. The role of VNA is more important than ever as patients spend less time in the hospital, the population continues to age and the demand for home healthcare increases. To meet demands, VNAs expertly trained clinical staff use the latest technology available to deliver comprehensive quality care.

There is adequate health care facilities in the County. There is an adequate number of beds available, but in the future hospitals may choose to expand or relocate to another area within the County.

Child Care Facilities According to the 2000 U.S. Census, there were 7,213 children under five years of age living in the County and 16,308 children between the ages of 5-14. With the high percentage of families consisting of dual income parents who commute to work, quality, easily accessible childcare is a critical concern for these families.

Although not referring to any official data, the Resource Specialist for Family Connections, Inc. in Sheboygan indicated in September of 2008 that there were likely “more children than we have placements for in our County.”

Table 6-9: Child Care Facilities CHILD CARE FACILITY NAME CITY/VILLAGE CAPACITY Michelle’s Family Day-Care Adell 8 Upson Child Care Cedar Grove 8 Kari’s Family Child Care Howards Grove 8 Barbie’s Family Day Care Center Howards Grove 8 Elly’s family Day Care Howards Grove 8 Kiddie Koral Howards Grove 8 Little Bears Day Care Howards Grove 8 So Tiny/ Division of So Big Howards Grove 8 Kaleidioscope Family Day Care Plymouth 8 Kraus’ Kinder Care Plymouth 8 Bonnie’s Kids Random Lake 8 Spring Day Care Random Lake 8 Agape family Services Sheboygan 8 Bundles of Joy Sheboygan 8 Carol’s Day Care Sheboygan 8 Darla’s Family Child Care Sheboygan 8 Dolores’ House for Little People Sheboygan 5 Great To Be Me Child Dev. Center Sheboygan 8 Gwynn’s Loves N’Hugs Sheboygan 8 Jarred’s Activity Place Sheboygan 8 Judy’s Family Child Care Sheboygan 8

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CHILD CARE FACILITY NAME CITY/VILLAGE CAPACITY Lauries Family Care Sheboygan 8 Little Rainbows Inc. Sheboygan 8 Lot’s – O- Love Sheboygan 8 Nell’s Family Day Care Sheboygan 8 Patti’s Day Care Sheboygan 8 Rhonda’s Family Day Care Sheboygan 8 Shirley’s Munchkin land Sheboygan 8 Sue’s Smiles Sheboygan 8 Superior Day Care Sheboygan 8 Tater Tots Sheboygan 8 Janet’s Day Care Center Sheboygan 8 Little Shepherds Inn Cedar Grove 16 Howards Grove Children Center Howards Grove 65 So Big P. S. And Children’s House Inc. Howards Grove 26 Trinity Lutheran Preschool Howards Grove 20 Here We Grow Child Care-Selma Plymouth 99 Learning Tree Academy I Plymouth 25 Learning Tree Academy II Plymouth 20 Sheboygan Co Head Start- Horizon Plymouth 10 Sheboygan Co Head Start- Plymouth Plymouth 18 Umos Plymouth MHS Day Care Center Plymouth 58 Our Lady Of The Lakes Child Care Random Lake 40 Building Bridges Child Care Sheboygan 12 Child’s Play Sheboygan 142 Great Beginnings Preschool Sheboygan 20 Happy Heart & Handprints LLC Sheboygan 50 Here We Grow- Job Center Sheboygan 14 Here We Child Care- Lincoln Sheboygan 77 Here We Grow Head Start Sheboygan 15 Immanuel Lutheran Child Care Center Sheboygan 20 John M Kohler arts Center Preschool Sheboygan 38 Jumping Frogs Preschool LLC Sheboygan 20 KinderCare Learning CTRS- #1019 Sheboygan 125 Mapledale Child Care Center Sheboygan 34 Montessori Children’s House Inc Sheboygan 50 New World Montessori School Sheboygan 30 Patty Cake Day Care & Learning CTR LLC Sheboygan 50 Pilgrim Preschool Sheboygan 20 Salvation Army Day Care Center Sheboygan 50 Sheboygan Co Head Start - Jefferson Sheboygan 18 Sheboygan Co Head Start- Lakeshore Sheboygan 83 St. Paul’s Christian Child Care CTR Sheboygan 25

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CHILD CARE FACILITY NAME CITY/VILLAGE CAPACITY Sunshine’n Smiles Children CTR Inn Sheboygan 45 Tender Loving Christian CC CTR Sheboygan 35 YMCA Youth Development CTR- North Sheboygan 120 Youth Development CTR-South Sheboygan 40 Sheboygan Co Head Start –Sheb Fall Sheboygan 28 St. Lutheran Preschool Sheboygan 20 YMCA Falls Little Friends Sheboygan 66 YMCA Sheboygan Youth Dev. CTR Sheboygan 46 Source: Wisconsin Department of Children & Families, September 2008

Adult Care Facilities According to the 2000 U.S. Census, there were 15,732 adults or about 14 percent of its population over 65 years of age living in Sheboygan County. This number is projected to increase to over 20 percent by 2030. This will increase the need for programs and facilities that serve this population. The Sheboygan County Division of Aging has as it purpose to plan, coordinate, and promote services and programs needed by older adults within the County. This includes a variety of services, such as counseling, transportation, nutrition, legal and benefit advocacy, and events/activities. The County’s Health and Human Services Department administers a wide variety of programs, including providing over 67,000 meals to adults 60 plus years of age and 2,286 trips by volunteer drivers to help the elderly or disable attend medical appointments in 2008.

A countywide study of senior citizen housing needs versus public and private facility capacities has not been undertaken. Even if the current capacity of public and private facilities is sufficient to meet existing needs, it is likely that based on the aging population new and/or expanded facilities will be needed in the future. Communities in Sheboygan County may want to consider adding an elder care facility use to appropriate districts in its zoning ordinance. In the meantime, there are a variety of care and living options in the area:

• Retirement Community. Self-contained housing communities designed for older adults. These communities offer meal programs and typically have a focus on social and recreational activities. Many other amenities may be available depending on the site. Facilities/Location: South Horizon Apartments, Plymouth

• Continuing Care Retirement Communities (CCRCs). Refers to a facility that is able to respond to an individual’s need for different levels of care as needs change. Levels of care may range from independent living to skilled nursing care. These services may also be augmented by assisted or supportive living, home health care, and/or adult day services, allowing one to select the level of care most appropriate for an individual’s changing circumstances. Facilities/Location/Beds: Cedar Landing, Elkhart Lake; Landmark Square, Sheboygan; Pine Haven Christian Home, 135; Terrace Estates, Sheboygan, 88

• Community Based Residential Facilities (CBRFs). State licensed group homes for five or more unrelated adults. CBRFs provide assisted living and health care services above normal room and board, but do not require care above intermediate level nursing care,

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and no more than three hours of nursing care per week per resident. The philosophy of a CBRF is to provide a home-like environment and to keep each resident as dignified and independent as possible, while maintaining a feeling of safety and security. The environment may be a house that has been renovated or a newly constructed building with private apartments for a large number of residents. Some facilities furnish all but the residents clothing while others have the residents fully furnish the apartment. Facilities/Location/Beds: Arbor View Communities, Plymouth, 20; Gables of Waldo, Waldo, 9; Beechwood Rest Home, Beechwood, 10; Cedar Grove Gardens I and II, 44; Gables on the Pond I and II, Random Lake, 48; Hometown Retirement, Oostburg, 15; KindredHearts, Plymouth, 15; Libby’s House and Libbys House East, Plymouth, 48; Pine Haven Christian Home, Sheboygan Falls, 140; Sheboygan Senior Community, Sheboygan, 70;Woodland Manor, Sheboygan Falls, 16; and 20 sites in Sheboygan, 379.

• Residential Care Apartment Complexes (RCACs). Places where five or more adults reside that consist of independent apartments. They offer each resident care and services unique to his or her needs. As each person’s need for care increases, services can increase accordingly. This gives residents an opportunity to remain in the apartment setting for a greater length of time. RCACs offer private residences with the features of a traditional apartment. Unit sizes vary from studio to one bedroom and larger. All units must have a kitchenette with cooking facilities. The individual generally furnishes apartments; however, some facilities may offer furnished or partially furnished apartments. Up to 28 hours of services that are supportive, personal, or nursing related may be provided to the resident. Facilities/Location/Units: Terrace Estates, Sheboygan, 60 one-bedroom units; Prairie Crossing-A Pine Haven Community, Sheboygan Falls, 40, Cedar Bay at Elkhart Lake, Elkhart Lake, 27.

• Adult Day Services. An option to a nursing home, these services were designed for adults who are experiencing a serious decrease in physical, mental, and/or social functioning and need a protective environment. Professional staff may include nurses, social workers, therapists, and other staff specially trained. Facilities/Location/Beds: Project Independence/Goodwill, Sheboygan, 30.

• Adult Family Homes. These are facilities where three or four adults who are not related to the operator reside and receive care, treatment or services that are above the level of room and board and that may include up to seven hours per week of nursing care per resident. Facilities/Location/Beds: Chouinard Adult Family Home, Elkhart Lake, 4; Ella Klemme Home, Sheboygan, 4; Hil Pacific Home, Sheboygan, 4; Hil Stone Creek, Sheboygan Falls, 4; Hil Walden, Sheboygan Falls, 4; Hil Woodland, Sheboygan, 4; Kind Hearts Inc., Cedar Grove, 4; Our Home Northside, Oostburg, 4; Our Home Parkside, Oostburg, 4; TLC Homes-Plaza Ln, Plymouth, 4; TLC Homes Falls, Sheboygan Falls, 4; TLC Homes Hawthorn Rd., Sheboygan, 4; TLC Homes Inc. Minnesota Ave., Oostburg, 4; TLC Homes North 29th, Sheboygan, 4; TLC Manor Parkway, Sheboygan, 4; TLC South 17th Place, Sheboygan, 4; TLC South 25th Street, Sheboygan, 4; Union House, Sheboygan, 4.

• Skilled Nursing Facilities. Offer long-term care for residents who require daily assistance. Some type of rehabilitation program also usually available. Facilities/Location/Beds: Beach Health Care Center, Sheboygan, 84; Beechwood Rest

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Home, Beechwood, 26; Greendale Health and Rehabilitation Center, Sheboygan, 64; Meadow View Manor, Sheboygan, 74; Morningside Health Center, Sheboygan, 72; Pine Haven Christian Home, Sheboygan Falls, 71; Plymouth Care Center, Plymouth, 60; Rocky Knoll Health Care Center, Plymouth, 158; Sheboygan Progressive Care Center, Sheboygan, 120; St. Nicholas Hospital Transitional Care Unit, Sheboygan, 15; Sunny Ridge, Sheboygan, 265.

As can be seen from the above list, adult care facilities mean much more than “nursing home care.” According to Gunderson and Graham Healthcare Consulting (April 2, 2004 report to Sheboygan County Health Care Citizens’ Task Force), the elderly are becoming healthier, better educated, more consumer savvy, and expect a variety of health care alternatives to be available to them. The least desirable option is nursing home care. In the last ten years, there has been a proliferation of assisted living and senior housing development. For local communities, especially small ones, this means it is possible to meet many of the housing needs of senior citizens without a large nursing home or similar type of facility.

Cemeteries In addition to the traditional, commonly understood service to the community, cemeteries, particularly older cemeteries, are often sites of historic significance. Tombstones, inscriptions, and memorials often provide glimpses of past times, in addition to providing a source of information on former residents and families residing within the community. Old historic cemeteries often encompass or are associated with historic structures or locations, such as churches, crossroads, and the founding site of a community. There are approximately 130 cemeteries within the County. These cemeteries (many of them small, old, and no longer active) are scattered throughout Sheboygan County, very few are located in villages; most cemeteries are located in the cities and throughout the unincorporated areas of the County. Additional demands for this service in the future should continue to be addressed by the private sector, and local communities should encourage such uses within their own community when properly designed and located. There is an ample number of cemetery facilities available for Sheboygan County for the next 20 years and beyond.

The County does not operate any cemeteries. Map 6-4 shows the cemeteries in the County. More information about who is buried in a particular cemetery may be found by contacting the Sheboygan County Historical Research Center.

OUTDOOR RECREATION INVENTORY National, State, and County Facilities National There is one national facilities or recreation opportunity in Sheboygan County; it is the Ice Age Trail. Ice Age Trail The Ice Age Trail is one of eight national scenic trails in the United States. Located in Wisconsin, the trail will be a thousand-mile walking/hiking trail, when complete. Currently, there are about 600-miles completed and available for use. When complete, the Trail will extend over 1200 miles from Interstate State Park on the Saint Croix River in Polk County to Potawatomi State Park in Door County, passing through more than 30 counties along the way. The purpose of the Ice Age Trail is to tell the story about the impacts of the Ice Age on earth

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history along a scenic footpath. The route of the Trail approximates the last stopping point or terminal edge of the most recent continental glaciation. The Trail varies to include other features of the glacial landscape, portions of the “Driftless Area” and other communities. Congress recognized the national significance of the Trail by designating it a National Scenic Trail in 1980. The State of Wisconsin designated the Trail a State Scenic Trail in 1987.

The Ice Age Trail is intended for low-impact activities such as walking, backpacking, hiking, cross-country skiing, and snowshoeing. Different segments of the Trail are owned by different entities (Federal, State, Private), so use is dictated by the owner. Some segments of the Trail coincide with bike, horse, or snowmobile trails. Some segments of the Trail have designated campsites or pass near public camping facilities. Some county forest areas along the Trail allow primitive camping with restrictions. Currently, segments of the Trail in Sheboygan County run through the Kettle Moraine State Forest-Northern Unit, as well as the LaBudde Creek State Fishery Area in the Town of Rhine. There is a plan to connect the end of the Trail in the Village of Glenbeulah to the LaBudde Creek segment and then continue the Trail through Sheboygan, Manitowoc, and Kewaunee Counties. The segment of the trail remaining to be built in Sheboygan County will be about 8 miles long. The building of the Trail will continue through the planning period.

State There are two state parks, one state forest, parts of two marsh-wildlife areas, some state natural areas, and some other state wildlife and fishery areas within Sheboygan County.

Kettle Moraine State Forest-Northern Unit The Kettle Moraine State Forest- Northern Unit is located 45 minutes north of the Milwaukee area and contains 30,000 acres of glacial resources including kames, eskers, moraines, and kettles of various sizes. Designated as a State Forest in 1936 by the Wisconsin State Legislature, the facility is currently managed by the Wisconsin Department of Natural Resources. The Forest is divided into two management units- Northern and Southern. The Northern unit is located in Sheboygan County, but also extends into Fond du Lac and Washington Counties. The Northern Unit comprises nearly 30,000 acres, of which nearly half or 15,000 acres lie within Sheboygan County. Most of the state-owned land in the County is located within the Kettle Moraine State Forest Northern Unit. Map 6-10 shows the location of this state-owned land including the Kettle Moraine State Forest.

The Kettle Moraine State Forest provides with a large variety of recreational opportunities and attracts residents and visitors from all over the world. Some of these opportunities include a visitor center, hiking trails, lakes, hunting, camping, boating, and many others. For a complete listing of some of these amenities, either access the Kettle Moraine State Forest’s website at http://www.dnr.state.wi.us/org/LAND/parks/specific/kmn/ or reference Sheboygan County’s Outdoor Recreation and Open Space Plan -2007.

Kohler-Andrae State Park Kohler-Andrae State Park is one of the last natural preserves along the Lake Michigan shore and is one of the most heavily used state parks in Wisconsin with annual attendance of over 400,000 visitors and 60,000 campers. The park features a newly expanded 135-unit family campground, a group campground, a tepee rental campsite and a new accessible cabin that can be reserved by

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campers with severe physical disabilities. The park also has several acres of picnic areas, indoor and outdoor shelter buildings, a modern nature center, several miles of hiking, biking, and horse trails, and a floating marsh boardwalk. This 1,000-acre scenic spot on the shore of Lake Michigan offers a peaceful setting year round. There are approximately two miles of wide sandy beach, a bathhouse, and two self-guided nature trails. This property consists of two separate parks, John Michael Kohler State Park and Terry Andrae State Park, with adjacent boundaries that are managed as one unit by the Wisconsin Department of Natural Resources. A unique feature of the park is the 285-acre Kohler Dunes State Natural Area. This area protects the fragile dune communities that are home to several rare and endangered plants. Access to the natural area can be made via a two and a half mile cordwalk trail through the sand dunes. Map 6-10 shows the location of the State Park. More information on the facilities and its amenities can be found by visiting http://www.dnr.state.wi.us/org/land/parks/specific/ka/ or by referencing Sheboygan County’s Outdoor Recreation and Open Space Plan -2007.

Kiel Marsh Wildlife Area The Kiel Marsh Wildlife Area is located in north central Sheboygan County, north of the Sheboygan Marsh on the Sheboygan River in portions of the Town of Rhine and Town of Russell in Sheboygan County. Portions of the Kiel Marsh lie in southwest Manitowoc County and southeast Calumet County. The property borders on the City of Kiel in Manitowoc County.

The Kiel Marsh was formed during the Ice Age. Early inhabitants of the area include the Fox, Sac, and Menominee Tribes of Native Americans. In 1963, the Conservation Commission approved the State acquisition of the property. This land is open for hunting, fishing, hiking, nature study, and other outdoor recreation activities. More information on this can be found at http://www.dnr.state.wi.us/org/land/wildlife/wildlife_areas/temp/kiel.htm.

State Natural Areas State Natural Areas protect outstanding examples of Wisconsin's native landscape of natural communities, significant geological formations, and archeological sites. There are eight State Natural Areas in Sheboygan County. These State Natural Areas are shown in Table 6-10, but a further description can be found in Sheboygan County’s Outdoor Recreation and Open Space Plan -2007 or by accessing http://dnr.wi.gov/org/land/er/sna/index.htm. The Cedar Grove Hawk Research Station has limited access for people because of the activities that occur at this natural area. Table 6-10: State Natural Areas located in Sheboygan County Name (State Natural Area Number) Location Size Cedar Grove Hawk Research Station (#8) Town of Holland East-Section 30 31 acres Kohler Park Dunes (#71) Town of Wilson-Sections 22 & 23 135 acres Kettle Hole Woods (#254) Town of Scott-Section 18 83 acres Crooked Lake Wetlands (#255) Town of Scott-Sections 6 & 31 261 acres Butler Lake and Flynn’s Spring (#257) Town of Mitchell-Section 20 158 acres Johnson Hill Kame (#258) Town of Mitchell-Section 8 14 acres Kettle Moraine Red Oaks (#259) Town of Scott-Section 14 316 acres Rhine Center Bog (#414) Town of Rhine-Section 11 53 acres

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Other State Lands & Areas There are a few areas of state land that are home to fish and wildlife. These are described below.

Kettle Moraine Springs Fish Hatchery- Town of Scott The Kettle Moraine Springs Fish Hatchery has Chinook and Coho salmon and Arlee rainbow, and Kamloops strains of trout. Along with hatching, this location also does rearing of the fish. This hatchery is located in Sections 10 and 11 of the Town of Scott. Tours are often conducted for school groups, scouts and other groups by appointment.

LaBudde Creek State Fishery Area- Town of Rhine LaBudde Creek State Fishery Area includes portions of LaBudde Creek that are Class I and Class II trout streams. The State Fishery Area is approximately 320 acres and was acquired to protect the fishery in this pristine watershed.

Nichols Creek State Wildlife Area- Town of Lyndon, Town of Mitchell The approximately 640-acre Nichols Creek State Wildlife Area protects the uppermost portions of the trout stream. Nine miles of the North Branch Milwaukee River, upstream of the study area, was approved in 1993 for fee acquisition as part of the “Streambank Protection Program”. The focus of that program is to protect critically threatened streams that are high quality waters, as well as purchasing property along degraded streams to rehabilitate them.

The portion of the North Branch Milwaukee River that runs through the Nichols Creek State Wildlife Area is designated as an Outstanding Resource Water in Wisconsin Administrative Code NR 102. Outstanding resource waters are those that are of such outstanding quality that discharges from municipal and industrial wastewater treatment plants must be of the same or better quality as the receiving water. This designation is based on the quality of the fisheries, protection of recreational uses, water quality and pollution sources. Only about two percent of the surface waters in the state are designated as outstanding or exceptional resource waters.

Schuett Creek State Fishery Area- Town of Rhine The Schuett Creek State Fishery Area in Section 16, Town of Rhine, includes approximately 120 acres of undeveloped land to protect the fishery of Schuett Creek. Schuett Creek joins the Sheboygan River 0.1 miles downstream of CTH MM and is 0.4 miles long. The stream is classified as a Class I trout stream with a population consisting of small brook trout. Water quality in the lower 800 feet is threatened by barnyard runoff, and streambank mowing. Fish diversity is good but the number of species is low. Intolerant, tolerant and very tolerant species are equally represented in the fish community.

North Branch Milwaukee River Wildlife and Farming Heritage Area The North Branch Milwaukee River Wildlife and Farming Heritage Area includes portions of Sheboygan, Ozaukee, and Washington Counties and encompasses a total of 19,487 acres of land. The core area is made up of 16,549 acres of land and an additional 2,938 acres made of corridors along the five tributary streams in the Area. The project areas includes river and stream corridors, large wetland complexes, three lakes, and rural/agricultural lands and is one of the largest blocks of open space remaining in southeastern Wisconsin where agriculture is the dominant land use.

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¾ Maintain the rural character of the area ¾ Maintain and enhance existing natural resources ¾ Restore plant communities and wetlands to improve wildlife habitat and water quality ¾ Provide nature-based outdoor recreation and education opportunities

Nearly 9,100 acres of cropland and pasture areas, 5,900 acres of wetlands, and 700 acres of forest occur within the boundary area. In an effort to achieve the goal of agricultural land preservation, the Wisconsin Department of Natural Resources is committed to working with local farmers and landowners to participate in Purchase of Development Rights (PDR) projects within the boundary area. Purchase of Development rights programs pay landowners the difference between the market price and the use price (e.g.- agricultural use value). In return, the landowner relinquishes his/her right to develop their land.

For more information on any of these areas, one can access Sheboygan County’s Outdoor Recreation and Open Space Plan -2007 or the DNR’s website (http://dnr.wi.gov/).

County-Owned The County owns a few areas that provide recreational opportunities. These include part of the Broughton Sheboygan Marsh Park & Wildlife Area, the Old Plank Road Trail and trailheads, Interurban Trail (on We Energies right-of-way), Gerber Lakes Public Fish & Wildlife Area., boat landings. Some of the County’s recreational facilities allow for snowmobiling in the winter, but the snowmobile trails are not publicly owned.

Broughton Sheboygan Marsh Park & Wildlife Area The Broughton Sheboygan Marsh Park & Wildlife Area lies in northwestern Sheboygan County, just west and north of Elkhart Lake; it encompasses over half of the Towns of Russell and Greenbush (North). It includes about 14,000 acres of land surface water; 8,166 acres of publicly owned land, of which 7,414 acres are owned by Sheboygan County and 752 acres by the State of Wisconsin. The remainder is privately owned, some of which is publicly accessible. The Sheboygan River flows easterly through the Marsh. The Sheboygan Marsh is uniquely managed in that the DNR is the primary manager of this property with assistance from the County.

The Wildlife Area is an ecologically diverse system comprised of expansive cedar and tamarack swamps, shrub marshes, lowland hardwoods, and large areas of marshes and open water. The Marsh is bisected by the Sheboygan River, which is impounded by a dam at the northeast corner of the property. The open waters and adjoining wetlands are a restored flowage of the Sheboygan River. Sheboygan Marsh lies in a 133 square mile watershed.

Sheboygan Marsh is particularly popular during the hunting and fishing seasons. Prime habitat exists for migratory waterfowl, small and big game animals, fish, furbearers, and various species of non-game animals. As such, it is especially attractive to hunters, fishers, and nature observers alike, for all seasons. The Marsh allows adjoins the Ice Age National Scientific Reserve.

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A major County Park, located on approximately 30 acres at the northeast corner of the property at the site of the Sheboygan River dam, has been developed by Sheboygan County. This popular facility offers the following:

ƒ Three Guys and a Grill (full service rustic restaurant and tavern) ƒ Broughton Lodge (multipurpose facility) ƒ State Wildlife Viewing Area ƒ 64 developed campsites ƒ Large picnic area with contemporary shelter ƒ Playground ƒ Canoe and boat rentals ƒ Launching ramps ƒ Fishing piers ƒ Public snowmobile trails (part of 199 mile county system) ƒ Large open areas

Management activities on the Sheboygan Marsh are primarily directed at habitat improvements for migratory waterfowl, small and big game animals, fish, and development of facilities for other compatible outdoor recreational pursuits. Wisconsin Department of Natural Resources professional staff, in accordance with a formal Management Agreement re-executed with Sheboygan County in 2002, following the adoption of the Marsh Management Plan, provides wildlife, fish, and forestry management.

Archaeological investigations have classified “Sheboygan Marsh” as an “archaeological treasure” of national significance; it remains a candidate for nomination to the National Register of Historic Places.

There are many projects underway at the Sheboygan Marsh Park, and many more are thought to possibly occur in the future. Some of these projects include an observation tower and a new facility for education programs. A detailed description of the possible projects can be found in the Sheboygan County’s Outdoor Recreation and Open Space Plan -2007.

Gerber Lakes Public Fish & Wildlife Area Sheboygan County’s newest public lands, this Fish & Wildlife Area is open to the public for multiple outdoor recreation uses. The Wildlife Area is located in Section 35, Town of Rhine, and 3 miles east of Elkhart Lake and is open to public hunting and fishing during these seasons.

The property includes three lakes, two of which are among the most popular fishing and canoeing lakes in the area. Big Gerber Lake is 15 acres and had a maximum depth of 37 feet; Little Gerber Lake is 8 acres with a maximum depth of 21 feet, and Bullet Lake, which is approximately one acre in size. A short, navigable channel connects big Gerber and Little Gerber; both lakes have restrictions on motorized watercraft.

The land cover on the property is diverse, consisting of tillable uplands, deciduous trees (principally maple, beech, oak, ash, birch, and aspen), coniferous forest (principally pine, spruce, and tamarack), meadow, and wetland. The topography of the property ranges from rugged steep slopes greater than 25 percent on the western and southern portions of the property, and gently

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rolling along the areas adjacent to the lakes. The southern portion of the property is in the process of being restored to a native prairie. This restoration project was complete following the planting of prairie vegetation in spring 2005. A barn on the site was removed in summer 2005. Removal of the barn structure enhances the overall wildlife experience on the property.

Recreation/Nonmotorized Trails Sheboygan County operates two multi-use recreation/nonmotorized trails. The two trails are the Old Plank Road Trail and the Interurban Trail. The Old Plank Road Trail does allow for mopeds and snowmobiles in the winter months, but the Interurban Trail is strictly nonmotorized and does not allow for these uses. Both of these trails were discussed in detail in the Transportation Chapter. The Old Plank Road Trail runs from the City of Sheboygan to the Town of Greenbush, with it continuing to the County line when Highway 23 is widened. The Interurban Trail comes north from Ozaukee County to the Village of Oostburg. It is planned that this trail will continue running north and one day reach Green Bay. These trails will continue to need maintenance over the course of the planning period. For further information on these trails, please see Sheboygan County’s Outdoor Recreation and Open Space Plan -2007.

Public Boat Access County-owned Boat Launches Crystal Lake Crystal Lake incorporates an extensively developed shoreline that fosters productive fishing in early morning and late evening when northern, crappie, perch, walleye, bass, and bluegills are caught. The property owners association helps maintain the clearness of water through proper management of this valued water resource. Motor boating is not permitted on Sundays.

Elkhart Lake Elkhart Lake is the largest natural lake in the County and fourth deepest in the State. Elkhart's clear water and rock, gravel, and sand shoreline make it ideal for almost any recreational use, particularly swimming and boating. The Lake has an excellent public boat landing and parking facility. Fishing for smallmouth bass and rock bass is very good, with some trophy-size walleye caught each year. Motor boating is not permitted on Sundays.

Little Elkhart Lake Little Elkhart Lake provides excellent fishing for largemouth bass, bluegill, and musky. Little Elkhart has a public landing with small picnic area. A lake management district exists to ensure a bright future for this scenic little lake. Motor boating is not permitted on Sundays.

Gerber Lake Gerber Lakes consists of two contiguous basins connected by a navigable channel. Both lakes provide summer and winter fishing of bass, bluegills, crappie, and perch. Outboard motors are not allowed on the Lakes. Sheboygan County purchased the 108-acre parcel to the west and north of the lakes in 1996 and an additional 45 acres to the south in 2001. These additional lands are now managed as the Gerber Lakes Public Fish & Wildlife Area.

Jetzer’s Lake Jetzer's Lake is a family fishing lake that does not permit motor boats. The lake incorporates a pier for fishing from the shore, which adds to the uniqueness of this lake. Though the bluegills

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and black crappies tend to be on the small side, occasionally good size fish are caught. Bass and northern pike provide more experienced fishermen with a challenge.

Other Public Boat Launches Beechwood Lake Beechwood Lake has a public access that is owned and maintained by the Town of Scott. Bullheads, panfish, and northern pike are abundant in Beechwood Lake.

Lake Ellen Lake Ellen has a public access that is owned and maintained by the Wisconsin Department of Natural Resources. The lake is most productive for panfish but walleye and largemouth bass are common.

Lake Seven Lake Seven has a public access that is owned and maintained by the Wisconsin Department of Natural Resources. The lake produces small catches of large bluegills and numerous largemouth bass.

Crooked Lake Crooked Lake has a public access that is owned and maintained by the Wisconsin Department of Natural Resources. Crooked Lake is most productive for panfish.

Random Lake Random Lake has a public access that is owned and maintained by the Village of Random Lake. Panfish average a small size. The lake also produces nice walleye.

Other Recreation Facilities There are many other recreation facilities located throughout Sheboygan County, especially in the individual municipalities. Some of these recreation facilities include campgrounds, skiing, snowboarding, snowmobiling, golfing, hunting, fishing, nature watching, recreational water use, and boating (See Map 6-9 for the locations of golfing and camping facilities in the County). More information on these facilities can be found in Sheboygan County’s Outdoor Recreation and Open Space Plan -2007 or in the City of Sheboygan’s Comprehensive Park, Recreation and Open Space Plan 2008-2013. Map 6-10 also shows a map of the overall outdoor recreation facilities located throughout Sheboygan County. There are also other recreation facilities located in neighboring Counties that residents may use, such as Lake Winnebago or other state or county parks. Sheboygan County’s Outdoor Recreation and Open Space Plan -2007 also identifies some open space priorities that are important for protection within the County. Some of these lands include riparian areas along major rivers, forestlands contiguous to the Kettle Moraine State Forest, lands adjacent to the Kiel Marsh Wildlife Area the Broughton Sheboygan Marsh Park, the WDNR land legacy listings, and other areas important for preservation and protection.

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[Map 6-9: Golfing and Camping]

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[Map 6-10: Outdoor Recreation Facilities]

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SUMMARY o Sheboygan County currently has 34 supervisors on its County Board; this number will be reduced to 25 supervisors in the future. o There are nine standing committees of the Sheboygan County Board or Supervisors. o Sheboygan County has a staff of over 1,000 employees, who work in 22 departments. o Electricity and natural gas are provided to County residents and business by a few companies, and with minor increases in capacity over time, it is expected these companies will continue to provide adequate services. o There are 15 public water systems in Sheboygan County, some of which have wellhead protection plans. The public water systems appear to be safe. o There are 19 sanitary districts in the County, but one is actually providing water to the municipality. These sanitary districts, along with the sanitary sewer service areas, use 16 municipal wastewater treatment facilities. o The wastewater treatment facilities in the County, appear adequate, but upgrades and expansion at some will be needed over the planning period. o The telecommunication facilities of the County, are adequate for some residents, but others would like to see more variety is the cable and internet providers and accessibility. o There are six law enforcement agencies in the County, and their services appear adequate for now. o There are 26 fire departments in the County, and only one is not staffed with volunteers. Attracting volunteers for all of the fire departments is growing harder, as time commitments for training increase. o Sheboygan County schools appear to be adequate in serving students. o The library system of Sheboygan County is complex and residents are able to enjoy books not only from the County, but from Ozaukee County as well. o The health, child, and elder care facilities are adequate in some communities, and not in others. As the population continues to age, more attention will need to be paid to the health and elder care facilities that are available throughout Sheboygan County. o Sheboygan County has a wide variety or outdoor recreation facilities available to residents and visitors. Some of the facilities or recreational opportunities are federal or state-owned, but the County also maintains a few of its own facilities. Local municipalities also maintain their own facilities.

UTILITIES AND COMMUNITY FACILITIES STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

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From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

Utilities and Community Facilities Goals, Objectives, Policies, and Programs Goal 1: Maintain, enhance, reduce, or expand public services in Sheboygan County, as necessary, due to changing demands of its citizens. Objective: Encourage public-private partnerships to enhance the level of public services. Policy Program: Explore the possibility of private-public partnerships in the areas of schools, fire, EMS, and police, in order to continue or expand services and programs. Objective: Develop methods to assess the existing and future public service needs of County residents. Policy Program: Periodically survey County residents to assess their needs for services in Sheboygan County. Objective: Promote a high-quality primary, secondary, and higher educational system. Policy Program: Encourage school districts, municipalities, and local communities to work together to achieve the highest quality education for students. Policy Program: Support the local continuing education programs at local colleges. Objective: Promote a high level of health care services. Policy Program: Work to provide County residents with adequate public and private health care facilities to maintain the high level of health care in Sheboygan County. Policy/Program: Continue to provide health care services, programs, and facilities by County agencies, where appropriate. Policy/Program: Continue to support the Aging and Disability Resource Center. Objective: Continue support of the County’s library system. Policy/Program: Policy/Program: Continue to implement Chapter 80, Sheboygan County Federated Library System Ordinance, of the Sheboygan County Code of Ordinances.

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Objective: Continue to provide high-quality, efficient, coordinated public safety programs and services. Policy/Program: Continue to provide police protection to County residents through the Sheboygan County Sherriff’s Department. Policy/Program: Continue the partnerships between the local police departments, the County Sheriff’s Department, and the local municipalities, including the SWAT team, the dive team, and the Multi-jurisdictional Enforcement Group (MEG). Policy/Program: Periodically assess the Sheriff’s Department, Law Enforcement Center, Jail, and Detention Center to determine if the facilities are adequate to serve Sheboygan County. Policy/Program: Continue to provide both police and fire presentations and programs, such as CounterAct, throughout local schools. Policy/Program: Continue the use of mutual aid agreements for fire protection. Policy/Program: Encourage coordination of service areas, possibly by completing a study to look at cross-boundary issues, such as EMS and Fire Protection Services (e.g. the gap in fire protection on the west-central side of the County).

Goal 2: Support and encourage sustainable and efficient energy options in public and private development. Objective: Encourage use of alternative energy sources. Policy/Program: Promote ordinances that encourage the use of alternative energy sources. Policy/Program: Promote the acquisition of energy from alternative sources. Policy/Program: Review and evaluate the potential for the County to participate in State and Federal sustainable energy programs (e.g. Focus on Energy, 25 X 25, U.S. Energy Efficiency and Conservation Block Grants). Objective: Encourage local units of government to use sustainable energy sources. Policy/Program: Provide technical assistance to help local units of government use sustainable energy sources. This may include assisting in the preparation of grants or other funding sources. Objective: Encourage development patterns and preservation of existing developments that are energy efficient. Policy/Program: Educate and inform citizens about the use of alternative energy sources and increased energy efficiencies.

Goal 3: Encourage intergovernmental coordination and cooperation in providing and planning utilities and community facilities. Objective: Promote better understanding among all levels of government on the roles and responsibilities of each. Policy/Program: Continue the local heads of government meetings.

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Objective: Work with other units and agencies of government, where appropriate, to construct and/or operate community services and facilities in a cost-effective and efficient way through joint service agreements. Policy/Program: Support the development of a County water testing facility on the UW-Sheboygan Campus. Policy/Program: Continue the private water testing between the UW-Extension and local municipalities. Policy/Program: Continue cooperation in local police and fire services, including mutual aid agreements. Policy/Program: Continue the Sewer Service Area (SSA) agreements and collaboration and cooperation for the Sewer Service Area and the Sewer Service Plan Technical Advisory Committee.

Goal 4: Ensure the continuation of County services to maintain and protect the public, human, and environmental health of residents of the County. Objective: Protect and enhance surface water and groundwater quality and quantity in Sheboygan County. Policy/Program: Support the development of land use patterns and water quality control programs to effectively meet the wastewater disposal needs of the local municipalities. Policy/Program: Establish a cooperative process with DNR, BLRPC, and local governments to develop a framework for coordinated planning of land use, sewage treatment and disposal, stormwater management, and water supply facilities and services. Policy/Program: Identify and explore how to remediate leaking petroleum and gas tanks within Sheboygan County. Objective: Work to ensure Sheboygan County residents are not adversely affected by stormwater runoff and flooding. Policy/Program: Support the implementation of water control plans, regulations, and facilities to manage stormwater runoff and flooding and minimize the adverse effects of flooding. Policy/Program: Continue to implement Chapter 75, Erosion Control and Stormwater Management Ordinance, of the Sheboygan County Code of Ordinances. Policy/Program: Continue to implement Chapter 77, Animal Waste Storage Facility Ordinance, of the Sheboygan County Code of Ordinances. Policy/Program: Identify techniques to properly collect and treat stormwater runoff. Policy/Program: Investigate funding/grants to install stormwater best management practices at County facilities. Policy/Program: Investigate the development of a program to supply stormwater management devices to private property owners (e.g. rain barrels).

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Objective: Continue to implement programs and regulations that protect public health. Policy/Program: Continue to implement Chapter 70, Sanitary Ordinance, of the Sheboygan County Code of Ordinances, which includes regulation of POWTS. Policy/Program: Continue to implement Chapters 10 through 19, Title II: Health and Welfare Ordinances, of the Sheboygan County Code of Ordinances, these include the licensure of hotels, motels, restaurants, tattooing, as well as ordinances on the County-owned health care facilities, emergency medical services, etc. Policy/Program: Continue to operate the County Health and Human Services Department programs, such as immunization clinics, restaurant inspections/licensing, beach water testing programs, Women, Infants, and Children (WIC) Nutrition Program, public health nurses home visits, Pregnancy and Young Family Service Programs, and Lead Poisoning Programs, etc. Objective: Continue to provide programs to meet solid waste disposal needs. Policy/Program: Continue holding the hazardous wastes collection sites throughout the County, including the collection of items containing mercury. Policy/Program: Continue to apply for grants to conduct household and agricultural chemical hazardous waste Clean Sweep Programs. Partner with local communities and counties during implementation of these programs. Policy/Program: Continue holding the annual waste pharmaceuticals collection. Policy/Program: Explore the feasibility of establishing a permanent household hazardous wastes and permanent waste pharmaceuticals collection site(s) in the County. Policy/Program: Work with pharmacies, medical centers, health care providers, hospice providers, and veterinarians in Sheboygan County to develop a program for unused pharmaceuticals. Policy/Program: Explore regional partnerships for recycling programs and facilities. Policy/Program: Continue to update local municipalities’ recycling and solid waste collection information on the County’s website.

Goal 5: Provide and maintain County recreational facilities that provide safe, passive, and active opportunities for residents and visitors. Objective: Provide an integrated system of public parks, trails, and related open space areas that will provide County residents with adequate opportunity to participate in a wide range of outdoor recreation activities. Policy/Program: Continue the updates to the County’s Outdoor Recreation and Open Space Plan and encourage the local municipalities to participate in these updates, in order to remain eligible to receive funds from the WDNR Knowles- Nelson Stewardship Program. Policy/Program: Explore private-public partnerships for the maintenance and acquisition of recreation and open space opportunities. Policy/Program: Work to connect the County’s Old Plank Road Trail with the Interurban Trail.

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Objective: Support local municipalities’ recreational facilities. Policy/Program: Provide technical assistance as municipalities explore funding for recreation needs. Policy/Program: Continue to provide funding for parks and recreation opportunities through the County’s Stewardship Fund.

Goal 6: Promote and encourage local municipalities to provide adequate and efficient utilities, such as sewer, water, solid waste, and power, in a cost-effective, sustainable manner. Objective: Promote the development and maintenance of a long-term viable supply and distribution system of high quality public drinking water, public sewage treatment, and stormwater management. Policy/Program: Encourage the development of long-range facility plans for sewer, water and solid waste disposal. Policy/Program: Educate and information local municipalities and agencies on ways they can protect their water supply. Objective: Encourage future development to occur only where safe and environmentally sound sewage disposal, drinking water, and other services can be economically and efficiently provided. Policy/Program: Provide information on ordinances revisions that may help to promote greater efficiency in utilities. Policy/Program: Inform local officials about funding sources in order to achieve, greater energy efficiency or increase the use of alternative energy sources.

Goal 7: Ensure that Sheboygan County government facilities are adequate to enable County departments and agencies to operate effectively. Objective: Continue to assess Sheboygan County facilities and departments’ needs on a regular basis. Policy/Program: Continue to prepare strategic plans for County government to prioritize short-term needs and projects. Policy/Program: Continue to prepare Capital Improvement Plans (CIP) to help identify major County projects. Policy/Program: Continue the annual County budget process to help ensure County departments and agencies have the personnel and resources required to perform the public services offered by Sheboygan County.

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CHAPTER 5 – TRANSPORTATION INTRODUCTION Over the last several decades, the term transportation has become synonymous with streets and highways, as our transportation system has been moving towards automobile-orientated infrastructure. Although streets and highways are components of a transportation system, they are just that – components. A truly comprehensive and balanced transportation system includes planning for multi-modal transportation that can be conveniently and safely used by the young, old, and everyone in between. This mobility requires the need for good infrastructure that includes: roadways, transit, trails, bicycles, and other modes.

The trend over the last several years has been toward the creation of automobile-oriented transportation systems that are characterized by a strict separation of land uses (residential from commercial, commercial from industrial, etc.), a lack of convenient connections between these uses, large parking lots situated between streets and buildings, wide streets that do not have sidewalks on either side, and other features that force people to drive to and from all of their destinations because other transportation modes are not practical. In many places, these land use and transportation facility decisions have created a dependency on the automobile so significant that the communities feel they have no choice but to continue building, rebuilding, and expanding their street and highway systems so they can continue to function. In addition to being very expensive to build and maintain, these systems make traveling very difficult for people who cannot drive. These types of transportation systems also force elderly people and others who might prefer not to drive to continue using their cars out of fear of losing their independence. Sheboygan County would like to see a mode shift, and looks to make this mode shift by building infrastructure that will make bicycling and walking more safe and efficient as connections are made between the current infrastructure.

In order to ensure safety and efficiency, the transportation system needs to be effectively managed and maintained. While planning for the location and density of future developments, priorities need to be set and evaluated for their impact on the transportation system. Poor maintenance and missed opportunities cost the County in the long run. The County will benefit from continual improvements to the transportation system.

This element contains an inventory of the transportation network and transportation plans in Sheboygan County and establishes some of the methods of creating a comprehensive and balanced transportation system that serves everyone. The Sheboygan County’s Comprehensive Bicycle and Pedestrian Plan serves the purpose of identifying needs and places for bicycle and pedestrian facilities, while other plans like Connections 2030, help to identify and make recommendations for multi-modal transportation in Sheboygan County. Having a multi-modal transportation system with high quality public transit, bicycle, pedestrian, arterial street, and highway elements adds to the quality of life of Sheboygan County residents. The multi-modal elements help support and promote the expansion of the County's economy by providing for convenient, efficient, and safe travel by each mode, while protecting the quality of the County's natural environment, and minimizing disruption of both the natural and manmade environment.

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INVENTORY OF TRANSPORTATION FACILITIES Streets and Highways Sheboygan County currently contains one interstate highway (Interstates are owned by the state and are considered a “state highway”), seven state highways, several county trunk highways (CTH), and many local streets. These streets and highways are currently the primary means of reaching the County’s residential, commercial, industrial, and other destinations. Sheboygan County has 451.02 miles of roads under its jurisdiction, while the municipalities have 936.99 miles under their own jurisdictions. Table 5-1 shows the County and municipal jurisdictional mileage for each municipality in Sheboygan County. Map 5-1 shows all the roads in Sheboygan County.

Table 5-1: County and Municipal Road Mileage, 2008* County Municipal Total Municipality Jurisdiction Jurisdiction Miles Town of Greenbush 29.63 52.49 82.12 Town of Herman 24.38 41.98 66.36 Town of Holland 38.87 54.70 93.57 Town of Lima 40.29 35.62 75.91 Town of Lyndon 31.81 30.41 62.22 Town of Mitchell 37.44 32.61 70.05 Town of Mosel 15.46 27.86 43.32 Town of Plymouth 31.31 41.43 72.74 Town of Rhine 31.72 44.55 76.27 Town of Russell 10.15 20.07 30.22 Town of Scott 28.40 40.27 68.67 Town of Sheboygan 11.96 49.32 61.28 Town of Sheboygan Falls 30.26 41.94 72.20 Town of Sherman 26.44 35.13 61.57 Town of Wilson 27.22 39.56 66.78 Town Total 415.34 587.94 1003.28 Village of Adell 1.97 2.26 4.23 Village of Cascade 1.03 3.44 4.47 Village of Cedar Grove 2.06 10.30 12.36 Village of Elkhart Lake 2.32 5.83 8.15 Village of Glenbeulah 2.36 2.98 5.34 Village of Howards Grove 1.82 16.34 18.16 Village of Kohler 3.66 18.75 22.41 Village of Oostburg 3.30 17.02 20.32 Village of Random Lake 1.80 11.20 13.00 Village of Waldo 0.34 2.96 3.30 Village Total 20.66 91.08 111.74 City of Plymouth 3.80 39.43 43.23 City of Sheboygan 8.03 187.57 195.60 City of Sheboygan Falls 3.19 30.97 34.16 City Total 15.02 257.97 272.99 County Total 451.02 936.99 1388.01 Source: WisDOT, WISLR *Note: This mileage is subject to change and is just a snapshot in time.

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[Map 5-1: Air, Land, & Water Transportation]

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The County has 44 County Trunk Highways. These roads are labeled with letters and are the County’s responsibility for all road related projects, including reconstruction, resurfacing, snow plowing, etc. Some of the CTH are less than a mile in length, while others cover several miles and are situated throughout much of the County. Sheboygan County has a larger proportion of CTHs on its road network relative to other counties. Map 5-1 shows all the CTHs.

Other Streets and Highways and their Programs Roundabouts Roundabouts are becoming more common in the U.S. because they provide safer and more efficient traffic flow than standard intersections. By keeping traffic moving one-way in a counterclockwise direction, there are fewer conflict points and traffic flows smoothly. Crash statistics show that roundabouts reduce fatal crashes about 90 percent, reduce injury crashes about 75 percent, and reduce overall crashes about 35 percent, when compared to other types of intersection control. When driving a roundabout, the same general rules apply as for maneuvering through any other type of intersection. Sheboygan County has seven roundabouts throughout the County and one rotary. These roundabouts are located at the I-43 on and off ramps at STH 42, Vanguard Drive and STH 42, CTH Y and STH 42, CTH JJ and STH 42, Superior Avenue (STH O), Wilgus Avenue, and 40th Street, and STH 32 and STH 28. The rotary is located at Indiana Avenue, South Pier Drive, and 8th Street. At least one more roundabout at Weeden Creek Road (EE) and South Business Drive will be constructed in 2010. There is a possibility additional roundabouts could be built in the coming years in Sheboygan County.

Rustic Roads The Wisconsin Legislature established the Rustic Roads program in 1973 to help citizens and local units of government preserve what remains of Wisconsin's scenic, lightly traveled country roads. Sheboygan County has one roadway labeled as a rustic road. County Road S beginning at the intersection of WIS 23 north to the Town of Glenbeulah is also known as Rustic Road 63. This road is 2.4 miles in length and some portions are gravel. County Road S rests on the remains of glacial sand and stone - some 10,000 years old. Winding north from WIS 23, one can see the remains of old farmland being reclaimed by the trees and shrubs since glacial soil made farming difficult. The last portion of the road runs through old forest and steep Kettle Moraine hills and curves.

Scenic Byways Program A 1999 state law (Wisconsin Act 9) directed the Wisconsin Department of Transportation (WisDOT) to develop and administer a state Scenic Byways program. The program is a cooperative effort between local communities and WisDOT to identify and promote state highway corridors with scenic and/or historical attributes that provide travelers an enjoyable visual, educational and recreational experience. There are no scenic byways in Sheboygan County.

Adopt-a-Highway Program The Wisconsin Department of Transportation initiated the Adopt-A-Highway program to allow groups to volunteer and support the state's anti-litter program in a more direct way. Each qualified group takes responsibility for litter control on approximately a two mile segment of state highway. The group picks up litter on this segment at least three times per year between

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April 1 and November 1. Groups do not work in dangerous areas like medians, bridges, or steep slopes. Work is permitted until the group notifies the department of their intent to abandon their segment. There are many road segments in Sheboygan County that have been adopted by local organizations. Their continued support is needed, as they help reduce litter along Wisconsin's highways, build statewide support for the anti-litter and highway beautification programs, educate the traveling public to properly dispose of litter, enhance the environment, and beautify Wisconsin's roadsides.

Transit There is no public transit service provided by the County; the City of Sheboygan provides transit service to the Cities of Sheboygan and Sheboygan Falls and the Village of Kohler. There are eight bus routes, but three of these routes operate north and south lines, bringing the total to 11 routes that traverse the City of Sheboygan and surrounding areas. One of the routes extends from the City of Sheboygan through the Village of Kohler to the City of Sheboygan Falls. Map 5-2 shows these public transit routes. During the school year, additional buses are put into service to provide neighborhood access to area schools. These buses are also open to the public and stop at transit bus stops. The cash fare for the bus routes varies depending on the time of day and the day of the week. More information on fares can be found at the Sheboygan Transit website, which is http://www.sheboygantransit.com/.

The routes remain fairly constant, with minor changes to the routes being made on an ongoing basis. Every five years, a Transit Development Program (TDP) is completed in which major route changes may occur.

Sheboygan Transit added bike racks to all their buses in 2008, through the Nonmotorized Transportation Pilot Program (NMTPP). This enables people to bike to the bus stop, ride the bus, and then bike elsewhere after getting off the bus. Expansion of the public transit system may be needed as growth continues to occur. One area that may be the first to see expansion of the transit system is the Town of Sheboygan.

Elderly and Disabled Transportation Elderly and disabled transportation systems are those programs that provide rides through scheduled bus services with paid or volunteer drivers, and volunteer programs with private vehicles and unpaid drivers. Current transportation services for elderly and disabled persons living within the County are provided through programs coordinated and administered by the Sheboygan County Health and Human Services Department’s Aging and Disability Resouce Center (ADRC) and the City of Sheboygan Transit. Long-distance medical transport options include Oostburg Ambulance, Orange Cross Ambulance, Plymouth Ambulance, and Random Lake Ambulance. There are two wheelchair accessible transportation providers: Regional Transit Connection and Wheelchair Taxi. Some other means of transportation that that elderly and disabled can use include Crabby Cabby, Comfort Keepers, Home Instead, Plymouth City Taxi, Sheboygan City Taxi, Sheboygan County Volunteer Driver Program, and Tender Hearts Senior Care.

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[Map 5-2: Sheboygan Transit System]

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Sheboygan County and the City of Sheboygan provide a shared service known as Regional Transit Connection (RTC). There are two separate services that are provided through RTC: the Sheboygan County Elderly and Disabled Transportation and the Paratransit Service for people with disabilities. The paratransit service is required by the American with Disabilities Act (ADA) and is meant to be complementary to the Sheboygan Transit fixed-route bus system. This service provides transit service to areas within three-fourths of a mile of a fixed bus route in the City of Sheboygan, Village of Kohler, and City of Sheboygan Falls. In 2008, the fare for this service was $3.00 for each one-way trip on weekdays, and $2.50 on weeknights and Saturdays. For the most updated information on fares, please contact the RTC.

The Sheboygan County Elderly and Disabled Transportation service provides safe, reliable, and affordable means of transportation, serving any person 60 years old and older and any person with a disability (anyone under 60 must have a physician’s authorization certification completed and approved before service can be provided). In January 2009, the County’s fare was $2.00 round trip for meal site trips and $2.00 one-way for all other trips. Both of these services are operated by Sheboygan Transit and serve part of the County, including Oostburg, Plymouth, Sheboygan, Sheboygan Falls, the Town of Sheboygan, Kohler, and a few other locations. RTC operates eight buses that service the paratransit and elderly and disabled transportation programs. There are over 70,000 trips a year through RTC, and currently, seven to eight people are turned away daily because the service is at capacity. For more information on either program, please contact the RTC at 920-459-3420.

Intercity Bus Transportation In the past, nearly every small community in the state was connected by an intercity bus service, which traditionally served the elderly, those who could not drive, students, and those individuals unable to afford alternative forms of transportation. Unfortunately, intercity bus service suffered the same fate as passenger rail service; as intercity bus ridership decreased the routes ended service.

There are two intercity bus lines that run through Sheboygan. The first is the Indian Trail Bus Line. The route starts in Calumet, Michigan and stops in places like Houghton, Marquette, Escanaba, Marinette, Green Bay, Manitowoc, and Sheboygan. The route ends in Milwaukee, where it stops at the Intermodal Station, where passengers can ride the train or bus to Chicago. The fares for these routes vary depending upon the departure and destination cities. In 2008, a bus running south leaves Sheboygan at 6:30 in the morning, while a bus heading north leaves Sheboygan at 11:00 pm and travels, through the night, to the north.

The Jefferson Line runs from Minneapolis, Minnesota through St. Paul, Eau Claire, Chippewa Falls, Stanley, Wausau, Wittenberg, Shawano, Green Bay, Manitowoc, Sheboygan, and ends in Milwaukee. The bus running from Minneapolis arrives in Sheboygan between 2:00 and 4:00 in the afternoon depending upon the day, while the bus running to Minneapolis arrives at 11:30 in the morning. In the planning period, there may be a continued increase in intercity bus transportation.

Park and Rides Park and ride lots provide excellent locations to meet carpools or vanpools. Some park and ride lots have a bus stop located within or nearby and may be near a train depot as well. Sheboygan

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County has three park and ride lots which are owned and maintained by the WisDOT. These lots are all located along the I-43 corridor. One is located near Oostburg and east of I-43 at County Road AA. This park and ride is light asphalt and has 30 parking spaces. The second is located at I-43 and County Road V and has 30 parking spaces as well. This park and ride is located near the south side of Sheboygan and is near the Kohler-Andrae State Park. The third park and ride is located at I-43 and State Highway 28. This park and ride is located near Deer Trace Shopping Center and has 45 parking spaces. All of these park and rides offer free parking.

Electronic Personal Assistive Mobility Devices (EPAMD) As of 2004, there were approximately 16,000 people in the U.S. who used electric powered wheelchairs or scooters. As baby boomers become senior citizens and mobility becomes a concern for this large population, the use of these aids is expected to rise.

Most wheelchairs are designed for use on sidewalks, driveways, and hard, even surfaces. Newer designs are more similar to scooters than to the traditional design of the wheelchair. The impetus for this new design has been people’s desire for more independence and mobility, to the point of being able to mount curbs and travel over rough ground.

Because of safety concerns, some communities have begun regulating EPAMDs by requiring reflectors and a headlamp during non-daylight hours, not allowing them on roads with speed limits higher than 25 mph, or restricting them to sidewalks and bike paths. Sheboygan County allows EPAMDs only on the Old Plank Road Trail, which is granted through Chapter 24 of the Sheboygan County Code of Ordinances. The City of Sheboygan prohibits persons from operating a bicycle, tricycle, or motor-driven vehicle on the North Pier or the South Pier. Most other municipalities in Sheboygan County have not passed regulations restricting their use, but may need to do so in the future.

Bicycle and Pedestrian Transportation The Wisconsin Bicycle Transportation Plan 2020 identifies general bicycling conditions on state and county highways located within Sheboygan County. The volume of traffic and the paved width of roadway were the two primary variables by which roads were classified for cycling. Sheboygan County has a variety of conditions for bicycling. State Highways 57 and 23 have mostly undesirable conditions for bicycling, with State Highways 42 and 28 have portions that are undesirable for bicycling. Many county highways have the best conditions for bicycling. Appendix 9 has a map with the overall bicycling conditions for Sheboygan County. The WisDOT Bureau of Planning is in the process of updating the overall bicycling conditions for Sheboygan County. Multi-modal trails, paths, bicycle lanes, paved shoulders, and pedestrian facilities located throughout the County are inventoried in Tables 5-2 through 5-6. Connections 2030, once adopted will take the place of the Bicycle 2020 Plan, and recognizes the complete streets concept, in that planners not only take into consideration the roads, but instead they take into consider all modes of transportation.

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Table 5-2: Shared-Use Trails** Name Location Length Width Greenbush Trail Greenbush 0.3 mile 10 Feet Kohler Trail System Village of Kohler 3.6 miles 6 Feet Interurban Trail Village of Cedar 5.5 miles 10 Feet Grove south to Ozaukee Co. Old Plank Road Trail Various 16.5 miles 8 Feet to 10 Feet Sheboygan Urban City of Sheboygan 6.94 miles 10-12 Feet Recreation Trail * It is recommended trails less than 10 feet in width be updated to 10 feet or greater. ** A shared-use path is defined as any path or sidewalk or portion thereof designed for the use of bicycles and electric personal assistive mobility devices by Sheboygan County and also serves usually two-way traffic from bicycles as well as pedestrians. Source: Sheboygan County Pedestrian and Bicycle Comprehensive Plane 2035

Table 5-3: Bicycle/Shared Roadways* Name Location Length Weeden Creek Road (CTH EE) from Evergreen Drive City of Sheboygan and 4.7 mi west to South 12th Street. S. 12th Street south to Town of Wilson Kohler Andrae State Park Indian Mound Road west to CTH KK. CTH KK north City of Sheboygan and 3.0 miles to CTH EE. CTH EE east to Evergreen. Evergreen Town of Wilson Road south to Indian Mound Road Sheboygan Urban Recreation Trail City of Sheboygan 2.4 miles * A shared roadway is a roadway that bicyclists and motorist share the same travel lanes. Source: Sheboygan County Pedestrian and Bicycle Comprehensive Plane 2035

Table 5-4:Bicycle Lanes* Name Location Length Width CTH PP City of Sheboygan Falls 1.5 miles 4 Feet Main Street (STH 32) City of Sheboygan Falls .25 miles 4 Feet Pleasant View Road City of Plymouth 0.9 miles 5 Feet *A bicycle lane is a portion of a roadway that has been designated by striping, signing, and pavement markings for the preferential or exclusive use of bicyclists. Source: Sheboygan County Pedestrian and Bicycle Comprehensive Plane 2035

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Table 5-5:Paved Shoulders Name Location Length Width County Highway LS From Eisner Avenue in the City of 8.1 miles 3-4 Feet Sheboygan north to the Manitowoc County Line County Highway P From Highway 23 to the Village of 2.7 miles 3 Feet Glenbeulah County Highway Y STH 23 north to STH 42 3.7 miles 4+ Feet County Highway V Interstate Highway 43 to CTH I 5.7 miles 3 Feet STH 32 Cedar Grove to Howards Grove 14.1 miles 3 Feet STH 42 Howards Grove to Manitowoc 3.4 miles 3 Feet County Line STH 67 City of Plymouth south to Fond du 10 miles 3 Feet Lac County Line Note: Many routes and trails currently continue into neighboring counties. Examples include the Interurban Trail, which travels south into Ozaukee County, and the bicycle/pedestrian route marked on CTH LS, which travels north into Manitowoc County. It is important, when planning for future facilities, that trail and route connections in neighboring counties be considered. Source: Sheboygan County Pedestrian and Bicycle Comprehensive Plane 2035

Table 5-6: Pedestrian Facilities Name Location Length Sidewalks City of Plymouth Various City of Sheboygan City of Sheboygan Falls Village of Adell Village of Cascade Village of Cedar Grove Sidewalks Village of Elkhart Lake Village of Glenbeulah Village of Howards Grove Village of Kohler Village of Oostburg Village of Random Lake Village of Waldo Source: Sheboygan County Pedestrian and Bicycle Comprehensive Plane 2035

Pedestrian travel is a universal mode of transportation, yet the needs of the pedestrian are often over-looked or unrecognized as a form of transportation. All people are pedestrian at one time or another, even those who generally use other modes of transportation, such as bicycles, automobiles, or transit. City and village streets should be an appealing place to both permanent residents and visitors alike. In addition, children, the elderly, and the disabled have unique pedestrian needs. Sheboygan County’s Pedestrian and Bicycle Comprehensive Plan 2035 details where there are existing sidewalks and shared-use paths, and identifies priority pedestrian gaps, and other pedestrian gaps in the cities and villages of Sheboygan County. For more information

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on bicycle and pedestrian facilities within the County please review Sheboygan County’s Pedestrian and Bicycle Comprehensive Plan 2035.

Old Plank Road Trail This is a popular 17 mile, American Planning Association award-winning trail, that accommodates bicyclists, runners, walkers, in-line skaters, horseback riders, moped users, Nordic skiers and snowmobilers on 8 to 10 feet of asphalt and 8 feet of turf. The trail runs parallel to State Highway 23 from Sheboygan, past the Village of Kohler, Sheboygan Falls, Plymouth, and on to historic Greenbush, where it links with the Ice Age Trail. This trail is located on the WisDOT right-of-way and is maintained by the Sheboygan County Planning and Resources Department.

The County is in the preliminary planning stages of a 5-mile extension of the trail to the Fond du Lac County line. This will be completed in conjunction with the expansion of State Highway 23, which is tentatively scheduled to begin in 2013 or 2014. Fond du Lac County also intends to develop the Old Plank Road Trail from the county line to the City of Fond du Lac; this would provide a connection to the City’s trail network. The length of this trail provides great connections between the cities in Sheboygan County. WisDOT will provide the Old Plank Road Trail right-of-way and grade for the new section of trail in Sheboygan and Fond du Lac Counties.

Interurban Trail The Sheboygan County Interurban Trail runs from the Village of Oostburg south through the Village of Cedar Grove to the Ozaukee County line. The trail then extends all the way through Ozaukee County to Milwaukee County. This is a paved trail that runs 5.5 miles in the County. Motorized vehicles (including snowmobiles) are prohibited from using the Trail. It is thought that this trail will expand to reach the City of Sheboygan and the Old Plank Road Trail. This trail provides a north-south connection for Sheboygan County residents and will connect to other populated areas of the County once the Trail is extended. Funding for the extension of the trail from Oostburg to Sheboygan has not been obtained; until funding can be obtained, the extension will not occur. The next phase of the trail, from Sheboygan to Green Bay, has also been put on hold until the trail extends to Sheboygan. The actual route of the trail from Sheboygan to Green Bay has not been decided.

Snowmobile Trails Sheboygan County has 228 miles of public snowmobile trails, which are maintained by 16 clubs that make up the Northern Kettle Moraine Snowmobile Association. The County Planning Department works with these clubs to receive funding for the grooming of these trails. For a detailed snowmobile trail map visit http://www.nkmsnow.com/map.html.

All-Terrain Vehicle (ATV) Trails The hills, valleys and challenging terrain in some areas of Wisconsin were created by the action of glaciers many thousands of years ago and make riding an all terrain vehicle a very enjoyable experience. The rest of the state ranges from flat open fields to rugged wilderness. This glacial topography is what makes this area ideal for ATV riding. Currently there are between 6,000 and 10,000 miles of ATV routes/trails in Wisconsin, but there are no public ATV trails/routes in Sheboygan County. Private owners may have ATV trails, but none are public.

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Equestrian Trails Horseback riders are welcome on more than 800 miles of trails in Wisconsin state parks, forests, recreation areas, and unsurfaced trails on former rail lines. Sheboygan County has a few equestrian trails. These include a trail 2.5 miles long in Kohler-Andrae State Park. Horses also have access to multiple trails in the Kettle Moraine State Forest-Northern Unit; there are also horse campsites in this state forest. Horse riding is also allowed along the 17-mile Old Plank Road Trail.

Rail Service There is no commuter rail service provided within Sheboygan County. There are railroad tracks that traverse the County and provide opportunities for businesses to ship their goods. The two rail service operators in Sheboygan County are Wisconsin and Southern Railroad and Union Pacific Railroad. The routes currently run primarily north and south, but there is talk of opening up the rail line between the City of Plymouth and the City of Sheboygan Falls or Village of Kohler. The route operated by Wisconsin & Southern Railroad operates on railroad track owned by the State. The portion of the tracks that WSOR operates begins in Saukville, in Ozaukee County, and passes through Random Lake, Adell, Waldo, Plymouth, Elkhart Lake, and WSOR operated railroad tracks end in Kiel. The Union Pacific Railroad operates many rail lines in Wisconsin. The portion of railroad in Sheboygan County operated by Union Pacific traverses from Milwaukee through Port Washington, Cedar Grove, and Sheboygan, and Union Pacific operates a small section from Kohler to Sheboygan. Union Pacific Railroad owned the rail line between Plymouth and Kohler, but has not operated seven miles of the track for over 20 years, and ceased operation of the other four miles of track between Kohler and Sheboygan Falls in 2006.

Sheboygan County belongs to the East Wisconsin Counties Railroad Consortium (EWCRC). This consortium is made up of representatives from Columbia, Dodge, Fond du Lac, Green Lake, Ozaukee, Washington, Winnebago, and Sheboygan Counties. The EWCRC works with WSOR, as well as WisDOT, to help pay for the rehabilitation and maintenance of the railroad lines that traverse through its member Counties. EWCRC also works with WSOR to help rehabilitate rail lines once they are acquired by WisDOT. In 2008, Sheboygan County’s annual contribution to the EWCRC was $25,000; this was an increase from previous years when the contribution was $15,000. An annual contribution is required by the contract creating the consortium. If it is not paid, the County is deemed to have withdrawn from the EWCRC. EWCRC helped to rehabilitate the rail line running from the south through Random Lake and Plymouth and continuing to Kiel.

WisDOT is looking to acquire the rail line between Sheboygan Falls and Plymouth. EWCRC has been instrumental in gaining support for the acquisition of this rail line. Once all necessary upgrades and rehabilitation is complete, WSOR is looking to be granted the rights to operate the railroad track between Plymouth and Sheboygan Falls. This rail service would provide direct rail services to the four businesses that lost rail service and that are now forced to use alternative means of transportation. This rail line would need rehabilitation, but this is where the partnership of the EWCRC and WSOR become involved. They will share costs in the process of rehabilitation. Sheboygan County will see an added benefit with the reopening of the rail lines, and sharing the costs makes it economically feasible. The WisDOT completed an Economic Impact Analysis on the Plymouth-Kohler Rail Corridor in June 2006. This analysis helped to show how many businesses are suffering, and how the rail line can provide an economic boost to

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that area. Map 5-1 shows all the railroad tracks in Sheboygan County, including some that are not being used, but may be used in the future.

Rails to Trails Rails to trails programs deal with converting the right of ways of unused or abandoned railroads into trails for use by pedestrians and/or bicyclists. Sheboygan County also encourages rails with trails programs, which allow trails to share use of railroad right-of-ways (ROW). Wisconsin has been a pioneer in using railways for trails. In 1965, Wisconsin was the first state to convert abandoned railway beds into recreational trails. There are some rails to trails opportunities in the County. A rails to trails project is going to begin in the City of Sheboygan on the old Union Pacific rail spur from Pennsylvania Avenue to Martin Avenue. This will create a trail approximately 1.67 miles in length. This project is being funded through the Nonmotorized Transportation Pilot Program. If railways are abandoned, rails to trails efforts should be made. If some railway ROWs are wide enough, rails with trails programs could also be explored.

Air Service The inventory of air transportation systems and facilities included both public airports that service the region, as well as private or semi-public airport facilities that service private commercial and recreational interests. The Wisconsin DOT Bureau of Aeronautics classifies airport facilities according to the function that they serve and the size and type of aircraft that they are capable of handling.

Regional Service The primary commercial-passenger and air freight service for residents of the County is provided by either General Mitchell International Airport located south of the City of Milwaukee or Austin Straubel International Airport located near the City of Green Bay. General Mitchell is a medium-hub airport owned and operated by Milwaukee County. Mitchell’s 13 airlines offer roughly 194 daily departures (plus 194 daily arrivals). Close to 90 cities are served nonstop or direct from Mitchell International. It is the largest airport in Wisconsin. The airport terminal is open 24 hours a day. Austin Straubel is served by four passenger airlines serving five destinations; Chicago, Detroit, Marquette, Milwaukee and Minneapolis. More than 2,400 travelers pass through Austin Straubel each day, and nearly 900,000 passengers utilized the facility in 2007. These services are considered adequate to meet the air travel needs of most residents of the County.

Local Sheboygan County Memorial Airport (SCMA) is owned by Sheboygan County. The SCMA is located at N6180 Resource Drive in the Town of Sheboygan Falls. SCMA is classified as a Transport/Corporate (T/C) airport. Transport class facilities can serve aircraft weighing as much as 60,000 pounds provided that approach speeds are less than 121 knots, with wing spans less than 80 feet in length. The primary runway will be nearly 6,800 feet in length and 100 feet in width once the runway extension project is completed; this is scheduled to be completed in Summer 2009. The second runway is nearly 5,000 in length and 75 feet in width and is scheduled for upgrades in the coming years. Corporate charter and limited commuter services are available at the County’s airport. This airport facility is capable of handling precision instrument approach operations. There is one fixed-based operator (FBO) at the airport. A FBO means any person, firm, corporation, or association carrying persons or property for hire or furnishing

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aeronautical services, supplies, or instruction and conducting such business from a particular municipal airport. This FBO provides fuel, car rentals, pilot training, aircraft repair, aircraft sales, restaurant services, a pilots’ room, hotel accommodations, and many other services. There are approximately 134 aircraft based at the airport and approximately 66,000 aircraft operations at the airport each year. This airport ranks as the tenth busiest airport for total take-offs and landings in Wisconsin. The location of the SCMA is shown in Map 5-1, as well as a three mile radius that includes height restrictions on buildings. There are height limitations for buildings within a three-mile radius of the airport. For a detailed map of these height limitations please contact the airport manager.

The future is looking bright for SCMA. SCMA’s most current project includes the building of another office/hangar facility for an aircraft company that one day plans to turn their aircraft design facility into a manufacturing plant for aircraft. This project could possibly bring up to 2,000 jobs to this site. In anticipation of this, the airport is preparing a site in the northwest portion of the airport for construction. The airport will also need to have municipal sewer service extended to it in order for the manufacturing plant to operate.

Private and Recreational Private airstrips offer minimal services, and are generally utilized by recreational fliers. Such facilities are required to obtain a certificate of approval or permit from WisDOT’s Bureau of Aeronautics. The permit is issued if the Bureau of Aeronautics determines that the location of the proposed airport is compatible with existing and planned transportation facilities in the area. Generally, permits are granted provided that the proposed airstrip is located to allow approaching and departing aircraft to clear all public roads, highways, railroads, waterways or other traverse ways by a height that complies with applicable federal standards. The permit is issued upon an application review by WisDOT, the county, and the municipality in which the facility is located, and by the appropriate regional planning commission.

In Sheboygan County, there are six privately owned airstrips consisting of: a 2,100 foot runway along STH 144 west of Random Lake; a 2,000 foot runway near CTH OK in the Town of Wilson; a 1,200 foot runway north of CTH J in the Town of Sheboygan Falls; a 2,300 foot runway near the Village of Oostburg; a 2,700 foot runway near the Lake Michigan shoreline in the Town of Holland; and a 2,500 foot runway north and west of CTH V in the Town of Wilson. These small, private airport facilities offer minimal services, and are generally utilized by recreational fliers.

There are two helipads within Sheboygan County, both associated with medical facilities. The first of these is owned by St. Nicholas Hospital in Sheboygan, while the second is owned by Aurora Memorial Medical Center in Sheboygan.

Waterborne Transportation Harbors and Marinas Although Sheboygan was classified as a diversified cargo port from 1970 to 2000, it is now classified as a limited cargo port. The decreases in both the overall tonnage and in the number of commodities have contributed to Sheboygan’s classification change.

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The Sheboygan Harbor consists of an outer harbor formed by a north breakwater and a south pier (encompassing approximately 96 acres), and an inner harbor extending approximately one mile upstream from the river’s mouth to the Pennsylvania Avenue Bridge. The Harbor Centre Marina is open to the public and managed by Skipper Buds. There are 253 boat slips, fuel and sanitary pump-outs, a fish cleaning station, showers and restrooms, a laundromat, and many other amenities. The marina operates seasonally from April 15 to October 15. The Sheboygan Yacht Club is located just south of the marina. The Yacht Club has 59 boat slips. The City’s Harbor Centre downtown/riverfront district is located adjacent to the harbor. This area provides museums, entertainment, restaurants, shopping, services, other businesses, and a hotel/conference center and indoor water park.

There are also boat ramps at Deland Park, Kiwanis Park, North Point, and the 8th Street Boat Ramps. These boat ramps allow for access to Lake Michigan or the Sheboygan River, which lead to access to Lake Michigan. All of the boat ramps and the marina are identified in Map 5-1. Due to the river bottom contamination, there have been restrictions on maintenance dredging for a long period of time. This has led to impacts on navigation in the river. Some of the boat ramps and slips have been impacted by navigation concerns caused by the build up of contaminated sediment. In 2009, the City of Sheboygan hired a consultant to assess the navigational impairments in the river and the level the City would need to dredge in order to eliminate those impairments to be incompliance with U.S. EPA and WisDNR regulations.

In 2008, Sheboygan became an official U.S. Sailing Center, making it a training site for the U.S. Olympic sailing team and an increasingly prominent destination for recreational and competitive sailors. It is the mission of the U.S. Sailing Center of Sheboygan to develop sailing ability in individuals to the extent of their capacity regardless of their age, income, ability, or disability.

Commercial Trucking Nationwide, the trucking industry provides efficient and safe transportation service to customers throughout the country. In 2006, the trucking industry hauled 10.7 billion tons of freight, or 69 percent of total U.S. freight tonnage. This compares to 2001, when trucks transported 67.6 percent of total U.S. freight. There are 613,242 for hire, private, and mail carriers registered with the U.S. DOT; 95.9 percent of these have fewer than 20 trucks.

Wisconsin’s economy depends on trucks for freight movement. Trucks carry 83 percent of all manufactured freight transported in Wisconsin, and over 77 percent of all Wisconsin communities are served exclusively by trucks. Sheboygan County has a variety of trucking companies operating in its borders. Table 5-7 shows the total commodity between Sheboygan and Wisconsin and Sheboygan and the United States for rails and trucks.

Table 5-7: Commodity Movement for Rails and Trucks in Tons Direction of Movement Year 2003 Year 2004 Year 2005 Year 2006 Year 2007 Sheboygan to States 2,239,852 2,304,851 2,371,875 2,440,992 2,512,271 States to Sheboygan 5,310,447 5,404,189 5,499,585 5,596,666 5,695,460 Sheboygan to Wisconsin 3,756,589 3,862,683 3,098,034 4,084,843 4,201,131 Wisconsin to Sheboygan 4,451,197 4,580,539 4,711,944 4,847,551 4,987,505 TOTAL 15,758,085 16,152,261 15,681,438 16,970,052 17,396,366 Source: WisDOT, Commodity Flow Data for Sheboygan County

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Over the planning period, it is important that the area’s truck routes be maintained and easily identified to minimize travel time delays and impacts on neighborhoods. It is also important to maintain the intermodal connections with the area’s railroads and attempt to enhance those connections. The trucking companies help to transport imports and exports to and from the area and enable area businesses to avoid having to warehouse large quantities of materials through the provision of “just in time” delivery services.

EVALUATION OF CURRENT INTERNAL TRAFFIC CIRCULATION SYSTEM Functional Classification System A component of a street and highway system is the functional classification network. This network is typically based on traffic volumes, land uses, road spacing, and system continuity. The three general functional classifications are principal and other arterials, collectors, and local streets. These classifications are summarized below. Appendix 10 provides the criteria on how urban and rural roads are functionally classified.

Arterials: The function of an arterial facility is to move traffic over medium to long distances, often between regions as well as between major economic centers, quickly, safely, and efficiently. Arterial facilities are further categorized into principal and minor arterials. Arterials carry longer-distance vehicle trips between activity centers. These facilities are designed to provide a very high amount of mobility and very little access. Some arterials in Sheboygan County include State Highways 23, 28, 32, 42, 57, 67, and 144. There are 52.2 miles of freeways and arterials within the County, with about half (24.58 miles) being under County jurisdiction. Interstate 43 is an example of a principal arterial that travels through Sheboygan County.

Collectors: Collectors link local streets with the arterial street system. These facilities collect traffic in local areas, serve as local through routes, and directly serve abutting land uses. There are major, minor, and urban collectors depending upon road use and location. The County has 290.48 total miles of collector roads, with 233.38 under its jurisdiction. This makes up about 21 percent of the total roads in the County.

Locals: Local roads and streets are used for short trips. Their primary function is to provide access to abutting land uses, while traffic volumes and speeds are relatively low. The majority of roads in the County are classified as local roads and streets. Over 1,039 miles of roadway are classified as local, or 75 percent of all the roads in the County.

Sheboygan County had over 1382 total miles of roads as of January 1, 2008, with 450.53 miles of those roads under the County’s jurisdiction. Map 5-3 shows the functional classifications of the roads in Sheboygan County.

Traffic Counts An analysis of past and present traffic volumes is beneficial in determining the traffic conditions in a community. Traffic volumes are usually presented as an Annual Average Daily Traffic (AADT) count and are calculated for a particular intersection or stretch of roadway. Map 5-3 shows some of the AADT counts that were completed in 2005. Traffic counts are taken on a rotating basis with traffic being counted on principal arterials and minor arterials with volumes over 5,000 every 3 years. Traffic is counted on minor arterials, with volumes less than 5,000, and collectors, with volumes over 5,000, every 6 years with half being counted in the even years

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[Map 5-3: Transportation Elements]

5-17 Sheboygan County Comprehensive Plan Adopted and half being counted in the odd years. Collectors, with volumes under 5,000, are only counted every 10 years. For more specific data on the traffic counts, access the WisDOT’s website or refer to individual municipality’s comprehensive plans.

Road Pavement Condition The road pavement condition is ever changing in the County. Each season, when there is new construction, reconstruction, and reconditioning, the rating of road segments changes. Appendix 11 provides a snapshot in time of the Pavement Surface Evaluation and Rating (PASER) system for segments of CTHs. The rating of the pavement is required to be sent to WisDOT every two years. Pavement is rated on a scale from 1 to 10, with 1 representing “failed” and 10 representing “excellent.” The County rates the County Highways, the state and local municipalities are responsible for rating their own roadways. As of the 2007 ratings, there were 576 rated CTH segments, and none received ratings of one or two and only three segments received a rating of three. About 10 percent of the County Highway segments had ratings of less than five, which does not seem out of line with the town roads in the County and with the streets of municipalities in the County.

Access Controls All state and federal highways within the county are subject to WisDOT review pertaining to existing or additional access. This includes any request for new driveways, reconstruction of existing driveways or even the change of use for an existing driveway. WisDOT’s review also includes any request from subdivision developers regarding new town roads. New town roads will be reviewed much the same as a new driveway access would be reviewed, except that they also need the approval of the local municipalities and the permits are issued only to the local municipality. The two State Statutes the WisDOT uses for access controls are 84.09 and 84.25. Access controls under 84.09 are purchased under State Statute 84.09 Acquisition of Lands and Interests, which is the same statute used for the purchase of real estate. Access controls under 84.25 are controls that can only be applied to highways that meet the criteria listed in the Statute, and these controls are capped at 1,500 miles statewide.

At this time (2009), WisDOT is in the process of establishing Section 84.25 Access Controls in Sheboygan County on STH 57 from STH 23 to the north county line. This process of Administrative Access Controls by Section 84.25 of the Wisconsin State Statutes is, at this time proposed to be completed later in 2009 or the very first part 2010. The complete project extends from the STH 57/STH 23 junction to the southern village limits of Hilbert on STHs 57 & 32, except for the municipal limits. In addition to the above mentioned access controls, there may be spotty controls on any one highway from existing right-of-way plats or Trans 233 land divisions. These are best reviewed on an individual basis because they can be from as small as one parcel to several sections.

Access management is a means to maintain the safe and efficient movement of traffic along arterial and major collector highways by controlling the number and location of intersecting roads and driveways. State statutes allow counties, cities, and villages (through an adopted ordinance) to control access on county highways that have traffic counts in excess of 1,000 vehicles daily. At this time, Sheboygan County does not have a Controlled Access Ordinance.

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Driveway Permits Driveways to county and town roads may also impair vehicle safety, if improperly sited and/or designated. The Sheboygan County Highway Department does issue a permit that looks at the drainage needed for driveways on CTHs, the size of the culvert, site distance, and how the driveway will connect to the road. Wisconsin State Statutes allow counties and towns to issue permits for all new driveways; these permits can allow a town to prohibit driveways that due to location (at the base or top of hills, within a specified distance from an intersection, etc.) are deemed unsafe. The permit process can also regulate the size and design of driveway culverts. Improperly designed and sized culverts can pose traffic safety problems and impede drainage from the road surface. Most towns in the County review driveways for design and drainage, but not for location.

WisDOT has jurisdiction over any new driveways to be constructed along all state highways, modified driveways, or changes of driveway use, and modifications or new public street connections. This is covered under Trans 231 and a permit is necessary for construction of a driveway before it can be built connecting to a State Highway.

Speed Limit Controls Local units of government can change speed limits for their roads under the authority and guidelines of the Wisconsin Statutes. Local officials play a key role in setting speed limits. They must balance the competing concerns and opinions of a diverse range of interests, including drivers (who tend to choose speeds that seem reasonable for conditions) and landowners or residents (who frequently prefer and request lower speed limits than those posted), law enforcement agencies with statutory requirements, and engineering study recommendations.

The prevailing speed – the one most drivers choose – is a major consideration in setting appropriate speed limits. Engineers recommend setting limits at the 85th percentile speed, which is the speed at which 85 percent of the freely flowing traffic travels at or below that speed. An engineering study measuring average speeds is required to determine the 85th percentile. Another consideration is the road’s design speed, which is the highest and safest speed the road was designed for, and takes into account the road type, geometry, and adjoining land uses.

Speeds shall be consistent, safe, reasonable, and enforceable. When 85 percent of the drivers voluntarily comply with posted speed limits, it is reasonable to enforce the limits with the 15 percent who drive too fast. Unreasonably low speed limits, however, tend to promote disregard for posted limits and make enforcement much more difficult. Such limits may also promote a false sense of security among residents and pedestrians expecting the speeds of drivers to decrease.

Sheboygan County has set speed limits on its County Highways. There is a process for changing the speed limits on these roadways. A citizen generally expresses his or her concerns about a particular roadway to the Traffic and Safety Committee. This committee is made up of people from the highway department and police departments. The Traffic and Safety Committee can recommend whether or not to raise or lower the speed limit to the Transportation Committee. If Transportation Committee members agree with the recommendation, they need to pass a resolution to be approved by the full County Board. The CTHs have speed limits of 55 miles per hour unless otherwise noted in Chapter 20 of Sheboygan County’s Code of Ordinances.

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INTEGRATION OF APPLICABLE TRANSPORTATION PLANS, PROGRAMS, AND MAJOR LEGISLATION

Federal Legislation Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) In 2005, the Safe, Accountable, Flexible, Efficient Transportation Equity Act: A Legacy for Users (SAFETEA-LU) was signed into law. SAFETEA-LU is the successor legislation to the 1991 Intermodal Surface Transportation Efficiency Act (ISTEA) and the 1998 Transportation Equity Act for the 21st Century (TEA-21). SAFETEA-LU authorizes Federal surface transportation programs for highways, highway safety, bicycle and pedestrian programs, and transit for the five-year period 2005-2009.SAFETEA-LU addresses the many challenges facing our transportation system today – challenges such as improving safety, reducing traffic congestion, improving efficiency in freight movement, increasing intermodal connectivity, and protecting the environment – as well as laying the groundwork for addressing future challenges. SAFETEA-LU promotes more efficient and effective Federal surface transportation programs by focusing on transportation issues of national significance, while giving state and local transportation decision makers more flexibility for solving transportation problems in their communities. Federal transportation policy promotes the increased use and safety of bicycling and walking as transportation modes. Sheboygan County had received $25 million for a non- motorized transportation pilot program, but that funding runs through 2009. Although there is a possibility that Congress could reauthorize funding for this program in the next SAFETEA-LU legislation.

Transportation Plans and Programs Wisconsin State Highway Plan 2020 Wisconsin’s State Trunk Highway system, consisting of approximately 11,800 miles of roads, is aging and deteriorating at the same time that traffic congestion is increasing.

In response to this critical issue, WisDOT, in partnership with its stakeholders, developed the State Highway Plan 2020, a 21-year strategic plan which considered the highway system’s current condition, analyzed future uses, assessed financial constraints and outlined strategies to address Wisconsin’s highway preservation, traffic movement, and safety needs. This Plan was adopted in 2000 and may be superseded at the time that Connections 2030 is adopted. Connections 2030 will be discussed later in the Chapter.

Six-Year Highway Improvement Program: 2008-2013 Administered by WisDOT, this highway improvement program addresses the rehabilitation of Wisconsin’s state highways. Rehabilitation falls into three major categories (restructuring, reconditioning, and reconstruction), giving it the often used abbreviation “3-R Program.”

Resurfacing entails provision of a new surface for a better ride and extended pavement life.

Reconditioning entails addition of safety features such as wider lanes, or softening of curves and steep grades.

Reconstruction entails complete replacement of worn out roads, including the road base and rebuilding roads to modern standards.

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There are 14 projects in the Six-Year Highway Program: 2010-2015 for Sheboygan County., as of June 2009. Table 5-8 is a listing of all the projects in Sheboygan County in the 6-Year Highway Improvement Program. The largest project will be the reconstructing of STH 23 from CTH P to the County line.

Table 5-8:2010-2015 Six-Year Highway Improvement Program for Sheboygan County* Highway Project Area-Description Year Work Description 23 CTH Y, Woodland Road, and 2013 Bridge Maintenance Rangeline Road 23 CTH P - County Line 2013 Reconstructing and resurfacing to make 4-lanes 23 CTH P – STH 32 2010 Road Maintenance 23 STH 57 Bridge 2014 Bridge Maintenance 28 Onion River Bridge 2013 Bridge Replacement (Mill off existing overlay and resurfacing) 32 STH 23- North West Village 2014 Resurfacing Limits 42 Howards Grove, STH 32 – N. 2010- Resurfacing Village Limits 2013 42 N Corp Limits Howards Grove 2012 Road Maintenance – North County Line (Partial mill and overlay) 43 South County Line – Wilson- 2010 Road Maintenance and Bridge Lima Rd. Rehabilitation 43 CTH FF Overpass 2010 Reconstruction 43 CTH O Bridge 2010 Bridge Rehabilitation 57 CTH I to STH 32 2013 Road Maintenance (Minor pavement repairs and overlay) 67 Caroline & Milw. Sts., City of 2014 Reconstruction Plymouth (Reconstruct urban street) 144 STH 28 – STH 57 2014 Resurfacing (Mill and resurface project) Source: WisDOT Six-Year Highway Improvement Program, 2010-2015 * As of June 18,2009

County Functional and Jurisdictional Studies

There are no existing county functional or jurisdictional transportation plans for the road system within Sheboygan County; however, such a study for the County is overdue. During a key stakeholder forum held November 30, 2004 in the Village of Adell, the Sheboygan County Highway Commissioner, at that time, said functional/jurisdictional classifications should be reviewed periodically. Roads can change from town to county and vice versa. In 2009, the County Highway Department was using a jurisdictional study that was completed in 1976; an updated study is needed, but it dependent on money and personnel from the WisDOT.

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Wisconsin State Airport Plan 2020 The Wisconsin State Airport System Plan 2020 provides a framework for the preservation and enhancement of a system of public-use airports adequate to meet the current and future aviation needs of the State of Wisconsin.

The state airport plan determines the number, location, and type of aviation facilities required to adequately serve the state’s aviation needs over a 21-year planning period, 2000 through 2020. The plan defined the State Airport System, and established the current and future role of each airport in the system. The plan also forecasts the level of public investment required to: upgrade substandard features of the system; preserve the airport system in the future; and enhance the system in the future in order to meet forecast increases in aviation demand.

This plan is used by WisDOT’s Bureau of Aeronautics to pre-qualify airport improvement projects submitted by airport sponsors for funding consideration. If a proposed airport project is not in conformance with the plan, the sponsor will need to demonstrate satisfactorily how the proposed project meets the planning and design guidelines established by the plan. If this is done, the plan will be amended accordingly.

This plan also provides a long-range perspective for public sector investment decisions. Unlike the State Highway System, WisDOT does not own any of the airports comprising the State Airport System, and does not initiate airport improvement projects. Airport owners initiate projects by submitting funding requests to either the Bureau of Aeronautics or to the Federal Aviation Administration (FAA). Consequently, the implementation of a system plan requires a continuing partnership between WisDOT and airport owners.

Sheboygan County Memorial Airport is listed as a Transport/Corporate airport, and according to the Plan is forecast to remain a Transport/Corporate airport through at least 2020. This could change depending on the success of the airplane design facility that is proposed. The airport has recently received funding for runway extensions from both the federal and state governments.

Draft Connections 2030 Connections 2030, Wisconsin’s long-range transportation plan, is a statewide multimodal policy- based plan that will help the state maintain and enhance its transportation system to meet the needs of the 21st century and fulfill WisDOT’s vision of an integrated multimodal transportation system that maximizes the safe and efficient movement of people and products throughout the state, enhancing economic productivity and the quality of Wisconsin’s communities while minimizing impacts to the natural environment. This plan is not divided into modes of transportation like the previous 2020 transportation plans; instead, it focuses on seven themes which are: preserving and maintaining Wisconsin’s transportation system; promoting transportation safety; fostering Wisconsin’s economic growth; providing mobility and transportation choice; promoting transportation efficiencies; preserving Wisconsin’s quality of life; and promoting transportation security.

Connections 2030 identifies 37 system-level priority corridors in Wisconsin, as well as the Metropolitan Planning Organizations (MPOs) within the State. These multimodal corridors are critical to serving Wisconsin’s current and future travel patterns and to supporting the state’s

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economy. The corridor maps illustrate how the plan might be implemented during the next 20 years. Sheboygan County falls within two of these priority corridors, and also has an MPO within its borders. The first corridor is known as the Kettle Country Corridor, which includes Fond du Lac and Sheboygan Counties and is along the State Highway 23 corridor. The second is the Titletown Corridor that stretches from Milwaukee to Green Bay. These corridors all include maps, along with visions for the future of the corridors and MPOs. Some of the visions for the future in the County include: an intercity bus that would go from Madison to Sheboygan; an increase in regional coordination and continued services; and intercity passenger rail with a stop in Fond du Lac, which residents from Sheboygan County may use. There would also be continued enhancement of the bicycle and pedestrian accommodations and links throughout the system-level priority corridors.

The final area that is mapped is the Sheboygan Metropolitan Planning Organization. The MPO overlaps with both priority corridors and includes short-, mid-, and long-term activities. Some of these short-term activities include: reconstruction of Highway 32 within Howards Grove; supporting a connection between Oostburg and Sheboygan for the Interurban Trail; supporting the implementation of the recommendations of the Non-Motorized Transportation Pilot Program (NMTPP); and studying the possibility of a full and partial interchange between State Highway 42 and CTH XX (in Manitowoc County). Some of the mid-term activities include: support of new intercity bus service between Madison and Sheboygan; reconstruction of STH 28 from CTH A to Greenwing Drive; supporting the construction of a trail between the Old Plank Road Trail and Bluebird Lane; and providing urban and rural bicycle and pedestrian accommodations along State Highways 28, 32, and 42. Some of the long-term activities include: reconstruction of interchanges at I-43 and CTH V and at I-43 and Highway 42; converting Highway 23 to a freeway from Highway 67 to Highway 32; expanding Highway 42 from CTH Y to CTH A; supporting construction of bicycle and pedestrian trails along Highway 28 and on the old rail line between Sheboygan and Cleveland; supporting the new intercity/feeder bus between Green Bay and Milwaukee, supporting a park and ride at I-43 and Highway 42; and supporting the installation of information about public transit at downtown Sheboygan’s transfer station. There are also recommended activities to be completed over the entire planning period. For more information and maps on these areas, access WisDOT’s Connections 2030 Plan (http://www.dot/wisconsin.gov/projects/state/connections2030.html).

WIS 23 Freeway Designation and Corridor Preservation Plan The Wisconsin Department of Transportation is preparing the WIS 23 Freeway Designation and Corridor Preservation study to prepare a long-range plan showing the ultimate transportation facility including access locations and types. This plan will show long-range transportation improvements (will be designed and officially mapped from County P to the freeway section near WIS 32) and the development of a freeway designation and corridor preservation plan for the WIS 23 Corridor. There will be two processes: the study process and the engineering process.

The goal of this study is to preserve the public investment in WIS 23 by planning for long-term mobility and safety. The objectives are: to map the right-of-way needed for the eventual conversion of WIS 23 to a controlled-access freeway; to avoid and minimize local impacts; to avoid and minimize environmental impacts; and finally, to work in a collaborative manner with local officials, stakeholders, and the public throughout the study process.

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WisDOT Policy Regarding Provision of Bicycle Facilities on State Highways Procedure 11-45-10 of the WisDOT Facilities Development Manual (WisDOT FDM) was developed in response to federal transportation policies urging state departments of transportation to encourage bicycle transportation and state law requiring WisDOT to assist in the planning and development of bikeways. It calls for the provision of bicycle facilities on state highways when the roadway is in an officially designated bicycle plan or 25 or more bicycle trips a day are anticipated during the peak season, and the current traffic volumes exceed 1,000 vehicles a day. It also provides some basic design guidelines for different types of facilities and other bicycle-safe design factors, based on the American Association of State Highway and Transportation Officials (AASHTO) Bicycle Facility Design Guidelines. WisDOT also published the Wisconsin Bicycle Facility Design Handbook in 2004, which is based on the AASHTO guide. In the design and engineering on bicycle facilities, the County will abide by these guidelines. Further information on these guidelines can be found in Sheboygan County’s Pedestrian and Bicycle Comprehensive Plan 2035.

Sheboygan Transit Development Program (TDP) Bay Lake Regional Planning Commission has prepared a Transit Development Program (TDP) for the Sheboygan Transit System. The primary purpose of the TDP is to determine short-term future needs for public transportation services, and the best transit system configuration that should be provided to meet those needs. The most significant recommendation that was implemented from the TDP involved the restructuring of routes in 2006 after detailed alternatives were analyzed.

Sheboygan Metropolitan Planning Area Transportation Improvement Program (TIP) Federal regulations which govern the planning process in metropolitan planning areas require the preparation of a Transportation Improvement Program (TIP), while state guidance requires the preparation of a TIP or TIP amendment consisting of a multiyear program of projects. Proposed transit operating, transit capital, specialized transportation, bicycle and pedestrian transportation, and street and highway projects must be included in an adopted TIP program of projects to be eligible for federal aid.

The most recent TIP for the Sheboygan Metropolitan Planning Area was created for 2008-2011, but there have been amendments to the TIP, due in part to the awarding of projects from the Non-Motorized Transportation Pilot Program.

Sheboygan County Non-Motorized Transportation Pilot Program In July 2006, the U.S. Congress adopted the new transportation budget, which included special provisions to create a Non-Motorized Transportation Pilot Program (NMTPP). Sheboygan County was one of four communities in the country selected to participate in this pilot program. As part of the NMTPP, Sheboygan County will receive up to $25 million over four years to develop a network of non-motorized transportation facilities that connect neighborhoods, retail centers, schools, recreation amenities, and employment centers that will allow people to change the way they choose to move around through their daily lives.

In November 2005, the Sheboygan County Board of Supervisors adopted a resolution designating the Sheboygan County Board of Supervisors’ Resources Committee and the

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Transportation Committee to oversee the NMTPP. Following passage of the resolution, the two committees began meeting jointly to begin preparations and move the program forward.

In December 2005, the County worked closely with Bay Lake Regional Planning Commission, the Sheboygan Area Metropolitan Planning Organization (MPO), and the Federal Highway Administration to amend the current Transportation Improvement Plan (TIP). The amendment was completed to include projects that will be funded from the NMTPP in 2007.

In March 2006, the Joint Committees appointed a Citizens Advisory and Technical Committee (CATC) from a field of 53 applicants. The CATC is made up of thirty individuals representing a variety of backgrounds and interests including: Transportation (Bay-Lake RPC, Sheboygan Area MPO, FHWA, WisDOT, local DPW); education; health and health care; local businesses; chambers of commerce/tourism; local units of government; bicycle enthusiasts; and the average citizen.

Sheboygan County has entered into an agreement with the Wisconsin Department of Transportation (WisDOT) for managing the funds. In addition to help with the administration of the grant program, the County has moved forward and created two positions specifically for the program. The first position is the Non-Motorized Transportation Pilot Program Manager. She oversees the program and its components. The second position, the Non-Motorized Transportation Pilot Program Specialist is responsible for overseeing on-the-ground implementation of the program. He works closely with contractors, engineers, and elected officials during the construction of any facilities related to this program. The program also hired an LTE to contribute to the implementation of the program completing data collection.

The NMTPP in Sheboygan County accepted two rounds of applications each year. The first round of applications was due in December 2006 and applications were accepted every March and September thereafter through 2008. The projects are ranked by the staff and sent to the CATC for review. The Sheboygan County Comprehensive Pedestrian and Bicycle Plan 2035 is the foundation for the decisions that were made for nonmotorized transportation funding. The CATC then reviews the applications and makes recommendations to the Joint Resources and Transportation Committee. Thirty-eight total projects were approved. These projects, as well as a brief description for each project, are shown in Table 5-9. These projects include applications for new or improved sidewalks, bicycle education, law enforcement training, paved shoulders, bike racks, and bicycle lanes. All monies left were awarded in the September 2008 round of applications. Some projects have begun construction, but others will be designed and constructed over the next few years.

Table 5-9: Nonmotorized Transportation Pilot Program Funded Projects Project #* Municipality/Applicant Project Description Sidewalk access on north side of school district campus 1 V. Oostburg from 6th to 8th Street 2 County Install bike racks @ County Facilities 3 T. Sheboygan Sidewalks, Bicycle/Ped lanes/trails planning T. Sherman/V. Random Pathway & sidewalks on Random Lake Rd. First Street 4 Lake and Spring Street

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Project #* Municipality/Applicant Project Description 5 C. Sheboygan Sheboygan Transit bicycle racks Bicycle Fed. Of 10 Wisconsin SRTS Education (County-wide) Bicycle Fed. Of 11 Wisconsin Countywide Bike to Work Week 12 C. Plymouth Eastern Avenue Educate motorists/pedestrians about the dangers of 17 V. Elkhart Lake Police speed 18 V. Howards Grove Sidewalks for Audubon CTH JJ/Badger/CTH A/Oriole Install path between school campus and new 19 Cedar Grove Schools subdivisions Provide paved shoulders on CTH A between Howards 20 County Grove and Lakeland College 25 V. Adell Sidewalks throughout the community Elkhart Lake Citizens 27 Trail Committee Provide paved shoulders on CTH A/J 29 C. Plymouth Provide paved shoulders on Sunset Drive 30 C. Plymouth Provide paths on Quit Qui Oc property (non-profit) Association of Pedestrians and Bicycle 31 Professionals Bicycle Friendly Workshops 33 WE Bike, etc. Law enforcement training 36 V. Cedar Grove Sidewalks and bike lanes on S Main Street 37 County Countywide bike racks (not owned by County) 38 County Countywide bike lane striping (not owned by County) Howards Grove School 39 District Pathways on High School Grounds 40 V. Howards Grove Bike lanes and sidewalks on Mill St & Audubon Road 41 County Bike lanes, sidewalks, & paved shoulders on CTH O Bike lanes, sidewalks, paved shoulders, pathways, road 43 C. Sheboygan Falls diets & signage 51 County Guaranteed ride home program 52 County/C. Sheboygan Multi-use pathway along Taylor Drive 53 C. Sheboygan Bike lanes & sidewalks on Eisner Avenue 54 C. Sheboygan Sidewalk gap filling project 55 V. Oostburg Sidewalk gap filling project 57 County Rail/Trail conversion 58 County NBPD Data Collection 59 County Marketing/Branding Safety Updates/Traffic Calming around Sheboygan 60 C. Sheboygan Area School District Schools

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Project #* Municipality/Applicant Project Description Multi-use paths, bike racks, sidewalks, & paved 61 Kohler shoulders 62 Plymouth Paved shoulders, signage, & multi-use pathways *Project number corresponds with application number and not the actual number of projects that have been approved. In reality only 38 projects have been approved by the Joint Resources and Transportation Committee.

State, Regional, and Local Bicycle and Pedestrian Transportation Plans Wisconsin Pedestrian Policy Plan 2020 The Wisconsin Pedestrian Policy Plan 2020 has a vision of establishing pedestrian travel as a viable, convenient, and safe mode of transportation. The three main goals of the plan are:

Increase the number of pedestrians and improve the quality of walking; Reduce the number of pedestrian crashes and fatalities; and Increase the availability of pedestrian planning and design guidance and other general information for state and local officials and citizens.

This plan provides the statewide policy framework for pedestrians, identifies WisDOT as a partner in pedestrian facilities, and also identifies the role that local municipalities should play in pedestrian planning and facilities. The programs and actions recommended are described in greater detail in the Pedestrian Policy Plan 2020.

Wisconsin Bicycle Transportation Plan 2020 The Wisconsin Bicycle Transportation Plan 2020 has a vision of establishing bicycling as a viable, convenient, and safe transportation choice throughout Wisconsin. The two main goals of the plan are:

Increase levels of bicycling throughout Wisconsin, doubling the number of trips made by bicycles by the year 2010 (with additional increases achieved by 2020); and Reduce crashes involving bicyclists and motor vehicles by at least 10 percent by the year 2010 (with additional decreases achieved by 2020).

Some issues and concerns that were raised during this planning process included the fact that Wisconsin as a whole lacks bicycle facilities, lacks safe road-sharing practices by motorists, it lacks safe bicycle crossings over major new highways, and needs greater recognition that new land development practices spread destinations too far apart to make it practical to bike. This plan addresses these concerns with some implementation strategies. These strategies include:

Plan and design State Highway systems with a strong consideration of bicycle accommodations; Make WisDOT offices good examples of workplace bicycle accommodations; Recommend that counties consider the needs of bicyclists in all road projects and build facilities accordingly; Propose that counties adopt a shoulder paving policy; Suggest that counties promote land-use policies that are bicyclist friendly;

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Educate law enforcement on share-the-road techniques and enforcement strategies for specific high-risk bicyclist and motorist infractions of the law; Encourage Wisconsin communities to consider the needs of bicyclists in all street projects; Propose that communities promote bicycle-friendly development through plans, zoning, and subdivision ordinances; Support communities in their efforts to encourage business involvement as a means to increase bicycle commuting and other functional trips; and Others.

The Sheboygan County Pedestrian and Bicycle Comprehensive Plan 2035 states that “bicycling can be made safer and more convenient at a reasonable cost. Changes need to be made, but there is potential for increasing bicycling. These changes need to be made through a collaboration of all agencies, people, and groups involved in the process.”

Sheboygan County Pedestrian and Bicycle Comprehensive Plan 2035 The Sheboygan County Pedestrian and Bicycle and Comprehensive Plan 2035 was adopted by the County Board in September 2007. The County’s Joint Resources and Transportation Committee (JRTC) as well as the Non-Motorized Transportation Pilot Program Citizens Advisory and Technical Committee (CATC) were involved in the creation and development of the plan. The organization included representatives from a wide range of backgrounds and municipalities throughout the County. The vision of the plan is: By 2035, Sheboygan County’s pedestrian and bicycle facilities will be an efficient, connecting system of routes and facilities that provide a safe, convenient, and viable transportation choice for Sheboygan County residents and visitors.

The goals of the Sheboygan County Pedestrian and Bicycle Comprehensive Plan are: • The establishment of pedestrian and bicycle travel as a viable, convenient, and safe transportation choice for Sheboygan County residents and visitors. • The creation of an efficient, connecting system of bicycle routes and facilities that provides a safe, convenient, and viable transportation choice for Sheboygan County residents and visitors. • Make a positive impact on the transportation options available for Sheboygan County residents. • Work to establish countywide policies that establish long-term meaningful improvements to the non-motorized transportation infrastructure of Sheboygan County. • Provide a safe non-motorized transportation network that establishes year-round use of non-motorized networks. • Increase the mode share of bicyclists and pedestrians. • Achieve a positive impact on the health of Sheboygan County residents by encouraging safe and active lifestyles through non-motorized means of transportation. • Provide integrated non-motorized transportation alternatives to automobile travel, including the construction of an interconnected network of sidewalks, bicycle lanes, and other on-street facilities, and shared-use trails that connect residents to locations where they live, work, shop, go to school, and play.

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This plan makes some recommendations that will impact Sheboygan County. These recommendations deal with the proposed pedestrian and bicycle network within the County. The Plan makes recommendations for short-term, mid-term, and long-term facilities. Short-term projects are recommended to be done between zero and five years from adoption of the plan; mid-term projects are recommended to be done between six and ten years following plan adoption; and long-term projects are recommended to be done between 11 and 20 years in the future. Map 5-4 shows all of the planned bicycle facilities that were identified in this Plan. Map 5-5 shows the timeline for the planned bicycle priorities. This map gives a picture of the time frame in which one would expect the planned bicycle facilities to be completed.

The pedestrian vision in the plan states, “By 2035, pedestrian travel will be established as a viable, convenient, and safe transportation choice for Sheboygan County residents and visitors.” The plan identifies gaps in sidewalks. Connecting people to destinations using sidewalks is one way to help increase the number of people using nonmotorized means of transportation for utilitarian purposes.

Year 2035 Sheboygan Area Transportation Plan (SATP) (2006) This plan summarizes the mission statement for the area, and the goals and objectives identified to help realize that mission statement. The mission of the plan is “to plan for a means of providing safe, efficient, effective, economical, convenient, aesthetic and multimodal transportation facilities for people, goods and services within the Sheboygan metropolitan planning area, for all trip purposes." Nine general goals were identified pertinent to:

• Enhancing economic vitality; • Increasing the safety and security of motorized and non-motorized users of the transportation system; • Increasing the accessibility and mobility options available to people; • Protecting and enhancing the environment, promoting energy conservation, and improving the quality of life within the metropolitan planning area; • Enhancing the integration and connectivity of the transportation network; • Promoting the efficient management and operation of inter-modal transportation; • Preserving and maintaining the existing transportation system and current transportation infrastructure; • Increasing public involvement in the transportation planning process; and • Using corridor level planning and design to develop aesthetically pleasing roads and highways.

The SATP plan is updated on a four-year cycle, so the next update will be in 2010.

Bicycle Transportation Facilities Plan for the Bay-Lake Region (2002) The Bicycle Transportation Facilities Plan for the Bay-Lake Region was prepared in 2002 by the Bay-Lake Regional Planning Commission, with partial funding from the Wisconsin Department of Transportation. It was prepared as a coordinating regional bicycle transportation plan for eight counties, 17 cities, 37 villages, and 122 towns, and the Oneida Nation of Wisconsin.

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[Map 5-4: Planned Bicycle Facilities]

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[Map 5-5: Planned Bicycle Priorities]

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Sheboygan County Bicycle Facilities Plan (1991) In 1991, the Sheboygan County Planning and Resources Department prepared the Sheboygan County Bicycle Facilities Plan by incorporating and expanding upon the Sheboygan Urbanized Area Bicycle Facilities Plan prepared by the Bay-Lake Regional Planning Commission and the Metropolitan Planning Organization (MPO) Technical Committee. The Sheboygan County Board of Supervisors Resources Committee adopted this plan as County policy. The Sheboygan County Bicycle Facilities Plan identified and recommended bicycle facilities along with suggesting other improvements to make bicycling in Sheboygan County a safer and more pleasurable experience for all types of bicyclists. The plan was the first County effort to systematically plan for bicycle accommodations at a countywide level. While this plan has its merits, it is essentially a recreational plan, and therefore it does not plan for utilitarian bicycle and pedestrian transportation.

Sheboygan Urbanized Area Bicycle Facilities Plan (1991) In 1991, the Bay-Lake Regional Planning Commission prepared the Sheboygan Urbanized Area Bicycle Facilities Plan as the Metropolitan Planning Organization (MPO) for the area. The Sheboygan Urbanized Area Bicycle Facilities Plan set forth goals, objectives, and policies for the development of bicycle facilities in the Sheboygan area. In addition, the plan evaluated and designated appropriate bicycle facilities, and recommended an education and safety program for bicyclists of all ages.

TECHNICAL AND FUNDING ASSISTANCE PROGRAMS There is a variety of state and federal programs for funding local transportation projects, including:

• Airport Improvement Program; • Congestion Mitigation and Air Quality Program (CMAQ); • Connecting Highway Aid; • Freight Railroad Infrastructure Improvement Program (FRIIP); • Freight Railroad Preservation Program (FRPP); • Harbor Assistance Program; • General Transportation Aid (GTA); • Local Roads Improvement Program (LRIP); • Local Bridge Program; • Traffic Signing and Marketing Enhancement Program; • Statewide Transportation Improvement Program (STIP); • Rural and Small Urban Area Public Transportation Assistance Program – Section 5311; • Federal Discretionary Capital Assistance Program; • Rural Transit Assistance Scholarship Program; • State Urban Mass Transit Operation Assistance; • Flood Damage Aids; • Local Transportation Enhancement Program (TE); • Bicycle and Pedestrian Facilities Program (BPFP); • Specialized Transportation Assistance Program for Counties – Section 85.21; • Elderly and Disabled Transportation Capital Assistance Program; • Surface Transportation Program – Rural (STP-R);

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• Surface Transportation Program – Urban (STP-U); • Safe Routes to School; • Wisconsin Employment Transportation Assistance Program (WETAP); and • Transportation Economic Assistance (TEA) Grant Program;

Additional information about these programs is available in Appendix 12.

SUMMARY o Sheboygan County has seven state highways and 44 County Trunk Highways. o There are over 1,388.01 miles of road in the County, of which 451.02 miles are under the County’s jurisdiction. o County Trunk Highways have Pavement Surface Evaluation Ratings that are comparable to local municipalities. Less than 10 percent off all County Trunk Highway segments had ratings of less than five (1 being failed and 10 being excellent), with the lowest rating being a three. o In the Six-Year Highway Improvement Program there are 16 projects for the County. One of these projects includes resurfacing a portion of Interstate 43. o The City of Sheboygan operates a transit system with routes that extend to the City of Sheboygan Falls and the Village of Kohler. Expansion may occur in the future to surrounding municipalities. o Sheboygan County and the City of Sheboygan provide a shared service known as Regional Transit Connection (RTC). RTC provides two services the Paratransit Service as well as the Sheboygan County Elderly and Disabled Transportation Service. o Sheboygan County has been expanding its nonmotorized facilities, using the Non- Motorized Transportation Pilot Program (NMTPP) funding. Some improvements include sidewalk connections, bike lanes, shared-use trails, and paved shoulders throughout Sheboygan County. o Sheboygan County maintains a 17-mile east-to-west trail (Old Plank Trail), as well as a 5.5 mile north-to-south trail (Interurban Trail). These trails look to expand as well as make connections to other trails in the region. o There are two rail service operators in Sheboygan County: Union Pacific and Wisconsin and Southern Railroads. o Sheboygan County Memorial Airport (SCMA) is located in the Town of Sheboygan Falls and is undergoing runway extensions. SCMA is also working with an aircraft company to develop an office/hangar facility that one day may turn into a manufacturing plant for aircrafts. o The harbor area in Sheboygan is classified as a limited cargo port, but the harbor allows for commercial fishing, museums, shopping, restaurants, hotels, and other amenities. o The WisDOT is working on a Freeway Preservation Plan for Highway 23 that will be completed in the coming year, as well as a Draft of Connections 2030. This plan identifies multi-modal plans for Sheboygan County.

TRANSPORTATION STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

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Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

Transportation Goals, Objectives, Policies, and Programs Goal 1: Provide an integrated, efficient, and economical transportation system that affords access, mobility, convenience, and safety and that meets the needs of all citizens, including transit-dependent residents, persons with disabilities, and the elderly. Objective: Provide a variety of transportation choices to meet the needs of all income, age, and special needs groups in Sheboygan County. Policy/Program: Ensure consistency among regional, County, and local land use and transportation plans so that the street and highway network, transit services, and bicycle and pedestrian facilities are appropriately sized and located to serve County residents. Policy/Program: Continue to monitor, plan for, and fund the operation of elderly and disabled transportation services and expand services as necessary. Policy/Program: Actively participate with the State of Wisconsin on transportation projects affecting the County. Policy/Program: Support the recommendations in the WisDOT’s Connections 2030 Plan. Policy/Program: Consider each transportation element developed under the Regional Transportation System Plan when programming and budgeting for transportation improvements. Policy/Program: The County shall maintain and update its five-year Capital Improvements Program, with all necessary inclusions for transportation and other public utilities and facilities. Objective: Ensure that roads are sufficiently maintained, well drained, and planned to support and accommodate the transportation needs of the agricultural, forestry, and other industries as they correlate to the needs of the local economy and the community. Policy/Program: Study the needs and feasibility of additional park and ride locations along the State Highway 57 corridor, and implement recommendations from such a study. Objective: Provide, where appropriate, a transportation system for the elderly and disabled in Sheboygan County that efficiently serves County residents. Policy/Program: Expand and enhance transportation for the elderly and disabled in Sheboygan County through programming and budgeting for transportation improvements.

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Goal 2: Develop a safe and efficient multi-modal transportation system that serves all users. Objective: Prioritize maintenance of the existing highway and street systems over the construction of new highways and streets. Policy/Program: The County shall continue to use WISLR to help prioritize improvements to the existing street system. Policy/Program: Official mapping of future streets and public trails shall be undertaken to preserve important corridors. Objective: Maximize safety, efficiency, and accessibility at intersections throughout Sheboygan County. Policy/Program: Study and implement a controlled access ordinance on the County Roads. Objective: Promote the improvement of driver education, design, and signage for roundabouts. Policy/Program: Evaluate roundabouts in Sheboygan County (including their safety and ability to keep the flow of traffic moving), at least annually and before other roundabouts are constructed. Policy/Program: Encourage an increase in signage warning drivers of the space that semi-trailers and dual trailers need when navigating roundabouts. Policy/Program: Ensure designs for new roundabouts provide adequate space for drivers, including semi-trailers, to navigate and proper signage. Objective: Encourage municipal ordinances that support safe egress and ingress of driveways. Policy/Program: Encourage setbacks that would eliminate the need to back onto roadways. Objective: Develop safe and continuous pedestrian and bicycle systems throughout Sheboygan County by constructing sidewalks, multi-use trails, bicycle lanes, and other facilities that are linked between communities and destinations. Policy/Program: Apply for grants to help fund the development, maintenance, and connection of Sheboygan County’s multi-modal transportation system. Objective: Utilize traffic calming techniques throughout Sheboygan County to improve safety and minimize the impacts of vehicles on neighborhoods. Policy/Program: Work with the County’s communities, WisDOT, school districts, and other entities to develop the County’s multi-modal transportation system. Objective: Provide and maintain a safe air transportation system to meet the travel and freight service demands. Policy/Program: Ensure the development and continued improvements of the Sheboygan County Memorial Airport to keep pace with new technology and to meet air transportation needs. Policy/Program: Support the development of aviation related business through the promotion of compatible land uses to protect its function as a vital component of the County's transportation system. Policy/Program: Continue to implement the recommendations in Sheboygan County Memorial Airport’s recently completed airport master plan and investigate methods of expanding passenger and freight service at the airport.

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Objective: Provide and maintain a safe rail transportation system to meet the needs of residents and businesses. Policy/Program: Encourage the development of and continued improvements to the rail network in the County. Policy/Program: Encourage an increased use of rail crossing signal lights, crossing bars, and signs, beyond minimum standards. Policy/Program: Support the development of rail related business through the promotion of compatible land uses to protect its function as a vital component of the County's transportation system. Objective: Ensure that major highway and bridge construction projects do not occur until land use and other impacts associated with these projects are thoroughly studied. Policy/Program: Design county highways and local streets within the context of the surrounding land use. Objective: Reduce vehicle miles traveled (VMT) in Sheboygan County by developing a transportation network for multi-modal transportation that efficiently integrates new and existing facilities. Policy/Program: Different and like land use types are efficiently connected to reduce VMT. Policy/Program: Ensure the connection of different transportation modes including buses, automobiles, planes, trains, walking, and bicycling to reduce VMT.

Goal 3: Improve transportation infrastructure and land use design to support a range of transportation choices for all citizens that serves the anticipated land use development pattern set forth in Sheboygan County’s Future Land Use Map. Objective: Expand and enhance alternative modes of transportation. Policy/Program: The County shall maintain and update its five-year Capital Improvements Program, with all necessary inclusions for transportation and other public utilities and facilities. Objective: Identify highways within the County by function and incorporate State, regional and other applicable transportation plans, including transportation corridor plans, county highway functional and jurisdictional studies, urban and rural area transportation plans, airport master plans and rail plans. Policy/Program: Support the recommendations in the WisDOT’s Connections 2030 Plan. Policy/Program: Complete a jurisdictional study of roads in Sheboygan County. Objective: Provide a comprehensive transportation system that will effectively serve and promote a sustainable land use pattern in the County. Objective: Ensure that development patterns are compatible with transportation infrastructure, and consider the environmental impacts, human impacts, connections, and direct and indirect costs of such development. Policy/Program: Implement a Complete Streets concept (streets that accommodate multi-modal forms of transportation, providing accessibility for all users) where applicable, i.e. urban portions and urban fringe portions of the County.

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Objective: Provide for the efficient and safe movement of people and goods within and through the County. Policy/Program: Continue to provide adequate maintenance of the County’s transportation facilities. Objective: Provide for safe, well-maintained, nonmotorized transportation (bicycling and walking) facilities in the County for utilitarian and recreational purposes. Policy/Program: Implement the goals, objectives, policies, and programs in the Sheboygan County Pedestrian and Bicycle Comprehensive Plan 2035. Policy/Program: Provide infrastructure for bicycle and pedestrian travel as an alternative to motor vehicle travel. Policy/Program: Continue to develop a trails system that pedestrians and bicyclists can use to travel to all parts of the County and to connect with regional trails. Policy/Program: Include facilities for walking and bicycling during the review and approval of all development projects, including street and highway improvements, to provide an alternative to vehicle travel and to promote a healthy lifestyle, especially in urbanized areas. Policy/Program: Maintain and enhance existing nonmotorized transportation infrastructure consistent with the Regional Transportation System Plan.

Goal 4: Minimize the impact of new transportation improvements on existing development and the community’s natural, cultural, agricultural, historical, architectural, and archaeological resources. Objective: Minimize the negative impacts of transportation networks on surrounding natural, cultural, agricultural, historical, architectural, and archaeological resources. Policy/Program: When constructing or upgrading transportation facilities, minimize the disturbance of the County’s natural, cultural, agricultural, historical, architectural, and archaeological resources.

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CHAPTER 4 – ECONOMIC DEVELOPMENT INTRODUCTION The economic development element is one of the nine elements of a comprehensive plan required by Section 66.1001 of the Wisconsin Statutes. Section 66.100 I (2) (b) of the Statutes requires the economic development element to compile goals, objectives, policies, and programs that promote the stabilization and retention or expansion of the economic base and quality employment opportunities in the County and participating local governments. Economic development is the process by which a community organizes and then applies its energies to the task of creating the type of business climate that will foster the retention and expansion of existing business, attract new businesses, develop new business ventures, and revitalize underutilized assets. Influencing and investing in the process of economic development allow a community to determine its future direction and guide appropriate types of development according to its own values. In addition, this element will include:

• An analysis of the County's labor force and economic base. • An assessment of the categories or particular types of new businesses and industries that are desired by the County. • An assessment the County's strengths and weaknesses with respect to attracting and retaining businesses and industries and designate an adequate number of sites for such businesses and industries. • Evaluate and promote the use of environmentally contaminated sites for commercial or industrial uses. • Identify economic development programs, including State and Regional programs, which apply to the County.

A complete list of county, regional, state, and federal economic development program are provided. Individual municipalities’ economic develop programs can be found in their respective comprehensive plan, or by asking the municipality.

Comprehensive planning recognizes the connection between economic development and quality of life. New growth and redevelopment can improve a community. Economic development is about working together to maintain a strong economy by creating and retaining desirable jobs, which provide a good standard of living for individuals. Increased personal income and wealth increases the tax base, so a community, county, or state can provide the level of services residents expect. Even though the private sector is the primary source of economic activity, the public sector plays an important and, ideally, complementary role. Economic development expenditures are an investment in the community. Local governments play an increasingly critical role in promoting private sector economic development because economic strength is critical to the vitality of a community.

ECONOMIC DEVELOPMENT COMPONENTS To be successful, economic development must function as a part of the whole socio-economic environment. This is accomplished through the development of strategies linked to several economic development components including: 1) infrastructure; 2) business development; 3) workforce development and 4) community cash flow. These components consist of several

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elements that influence the quality and effectiveness of economic development within a community.

Infrastructure development by both government and private business is the support system needed for producing and delivering goods and services. Business development addresses business retention, expansion, attraction, and development. Workforce development looks at how communities need a well-rounded workforce to stay competitive, keep existing businesses strong, retain young in the community, and raise the area’s general standard of living. Community cash flow is the idea of communities looking to bring in new dollars, through either of two new sources: those brought in by individuals and those brought in by organizations, businesses or government. The following pages and chapters will help address these components in order to gain an understanding of the quality and effectiveness of the County’s economic development

LABOR FORCE CHARACTERISTICS The labor force is comprised of employed persons and those seeking employment, and excludes persons in the armed forces or under age 16. Variations in the number of persons in the labor force are the result of many factors, such as shifts in the age and gender characteristics of the population, changes in the number of residents aged 16 and over, the population of this group (16 and over) working or seeking employment, and seasonal factors. An understanding of the characteristics of the local and regional labor force is an important consideration when planning an economic development strategy, since businesses and industries require an adequate supply of qualified workers.

Education Attainment Educational attainment plays a critical role in the jobs created and available to residents of Sheboygan County. Sheboygan County has a greater percent of residents with bachelor’s degrees or higher compared to Fond du Lac and Manitowoc Counties, but Sheboygan County has a lower percentage of residents attaining these higher levels of education compared to Ozaukee and Washington Counties (see Table 4-1). Levels of education affect the attractiveness of a community to businesses who are looking to relocate or expand. Some companies would create many jobs requiring at least a bachelor’s degree, while other companies may create jobs that are only in need of workers with a high school diploma.

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Table 4-1: Educational Attainment Levels Sheboygan Fond du Lac Manitowoc Ozaukee Washington Educational Attainment County County County County County Levels 2000 2000 2000 2000 2000 Population 25 years and over 74,561 63,548 55,452 54,912 77,709 Less than 9th grade 5.8% 5.8% 6.7% 2.9% 4.3% 9th to 12th grade, no diploma 9.8% 10.1% 8.8% 5.2% 6.9% High school graduate** 39.9% 40.1% 43.0% 24.2% 35.1% Some college, no degree 19.7% 19.1% 18.6% 22.0% 22.9% Associate degree 6.9% 8.2% 7.4% 7.0% 8.8% Bachelor's degree 12.8% 12.0% 11.3% 25.6% 16.0% Graduate or professional degree 5.1% 4.9% 4.1% 13.0% 6.0% Percent high school graduate or higher 84.4% 84.2% 84.6% 91.9% 88.8% Percent bachelor's degree or higher 17.9% 16.9% 15.5% 38.6% 21.9% Source: U.S. Census Bureau

Place of Work Table 4-2 shows that approximately 87.9 percent of workers in 2000, who were 16 years and older, worked in Sheboygan County, their County of residence. Of all neighboring counties, Sheboygan County has the greatest percent of its workforce living and working in Sheboygan County. Less than 12 percent of Sheboygan County residents work outside the County. The majority of these residents work in Ozaukee, Manitowoc, and Milwaukee Counties. It is feasible that these are the counties that would attract Sheboygan County residents for employment because of the proximity to the County and the population center of Milwaukee County. According to the Wisconsin Department of Workforce Development, approximately 6 percent of Manitowoc County residents commute to Sheboygan County for work. Approximately 1.5 percent of Ozaukee and Fond du Lac Counties’ residents commute to Sheboygan County for their place of employment. Only a little over 50 percent of the residents in Ozaukee and Washington Counties actually work in their county of residence. Ozaukee County has the largest percent of residents working outside the State, but that is to be expected because of its proximity to Illinois. In 2000, all the counties shown in Table 4-2 had over 99 percent of their residents working within the State.

Table 4-2: Place of Work Worked in Worked Worked Outside County of outside County Worked in State State of County of Residence Total Residence of Residence of Residence Residence Number % Number % Number % Number % Sheboygan County 58,546 51,484 87.9% 6,844 11.7% 58,546 99.6% 218 0.37% Fond du Lac County 50,732 36,585 72.1% 13,986 27.6% 50,571 99.7% 161 0.32% Manitowoc County 42,406 33,840 79.8% 8,427 19.9% 42,267 99.7% 139 0.33% Ozaukee County 43,544 22,469 51.6% 20,762 47.7% 43,231 99.3% 313 0.72% Washington County 63,620 32,066 50.4% 31,286 49.2% 63,352 99.6% 268 0.42% Source: U.S. Census Bureau

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Median Household Income In 1989, the median household income in Sheboygan County was $31,603, but by 1999 the median household income had increased to $46,237 (see Table 4-3). Sheboygan County’s median household income is greater than Fond du Lac and Manitowoc Counties, but less than Ozaukee and Washington Counties. The net per capita income is available in Chapter 1.

Table 4-3: Median Household Income (Gross) Municipality 1989 1999 Percentage Increase Greenbush $38,523 $54,118 40.5% Herman $33,261 $51,875 56.0% Holland $38,427 $57,419 49.4% Lima $35,503 $53,023 49.3% Lyndon $36,250 $56,121 54.8% Mitchell $36,500 $56,875 55.8% Mosel $37,813 $55,833 47.7% Plymouth $28,918 $61,038 111.1% Rhine $37,168 $62,500 68.2% Russell $32,500 $51,250 57.7% Scott $33,300 $51,771 55.5% Sheboygan $40,282 $60,846 51.1% Sheboygan Falls $34,643 $50,489 45.7% Sherman $34,722 $52,375 50.8% Wilson $41,134 $59,241 44.0% Adell $32,604 $51,000 56.4% Cascade $33,000 $47,232 43.1% Cedar Grove $31,451 $49,674 57.9% Elkhart Lake $38,077 $56,538 48.5% Glenbeulah $29,861 $42,656 42.8% Howards Grove $39,250 $59,032 50.4% Kohler $43,029 $75,000 74.3% Oostburg $31,446 $47,469 51.0% Random Lake $30,913 $45,938 48.6% Waldo $30,500 $48,125 57.8% City of Plymouth $28,918 $42,103 45.6% City of Sheboygan $27,647 $40,066 44.9% City of Sheboygan Falls $31,943 $47,205 47.8% Sheboygan County $31,603 $46,237 46.3% Fond du Lac County $29,441 $45,578 54.8% Manitowoc County $27,467 $43,286 57.6% Ozaukee County $42,695 $62,745 47.0% Washington County $38,431 $57,033 48.4% State of Wisconsin $29,442 $43,791 48.7% Source: U.S. Census Bureau

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The Village of Kohler had the highest median household income in 1989 and 1999 of all municipalities in Sheboygan County, while the City of Sheboygan had the lowest median household income in both 1989 and 1999. The Town of Plymouth saw the largest percent increase (111 percent) of its median household income between 1989 and 1999.

Occupation In 2000, the majority of the County were employed in “production, transportation, material moving occupations” (30 percent) or “management, professional, and related occupations” (26 percent) (see table 4-4). Fond du Lac and Manitowoc Counties have a majority of those employed in the same industries as Sheboygan County. Ozaukee and Washington Counties have the largest percent of employer persons in the managerial, professional, and related occupations, but their second largest occupation area is sales and office occupations. The farming, forestry, and fishing industry makes up less than one percent of all persons employed in occupations in Sheboygan County.

Table 4-4: Employed Persons by Occupation, 2000 State of Sheboygan Fond du Manitowoc Ozaukee Washington Wisconsin County Lac County County County Occupation County 2000 2000 2000 2000 2000 2000 Managerial, Professional, and Related 857,205 15,422 13,526 10,448 18,910 20,805 percent of employed population 31.3% 25.9% 26.3% 24.3 42.8% 32.2% Sales and Office 690,360 12,831 11,625 8,880 11,447 16,248 percent of employed population 25.2% 21.6% 22.6% 20.7 25.9% 25.1% Service Occupations 383,619 8,084 7,750 5,793 4,656 7,244 percent of employed population 14.0% 13.6% 15.1% 13.5 10.5% 11.2% Construction, Extraction, Maintenance 237,086 4,898 4,837 4,264 2,783 6,468 percent of employed population 8.7% 8.2% 9.4% 9.9% 6.3% 10.0% Production, Transportation, Material 540,930 17,692 12,748 12,748 6,231 13,569 Moving percent of employed population 19.8% 29.8% 29.7% 29.7% 14.1% 21.0% Farming, Forestry, Fishing 25,725 527 820 820 176 353 percent of employed population 0.9% 0.9% 1.9% 1.9% 0.4% 0.5% Total Employed Persons 2,734,925 59,454 51,374 42,953 44,203 64,687 Source: U.S. Census Bureau

Industry According to the U.S. Census Bureau, there are 13 industry areas. Table 4-5 shows that in Sheboygan County the majority of people (38 percent) are employed in the manufacturing industry. The health, education, and social service industry make up 17 percent more of the workforce. All the surrounding counties have the greatest percent of employment in the manufacturing industry as well. Sheboygan County has over 16 percent more people in the manufacturing industry than the entire State of Wisconsin. Sheboygan County also has fewer people in the public administration industry than all surrounding counties, expect for Washington County. Sheboygan County also has a lower percentage of people employed in the agriculture,

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forestry, fisheries, and mining industry than all surrounding counties and the State besides Washington County.

Table 4-5: Employment by Industry State of Sheboygan Fond du Manitowoc Ozaukee Washington Industry Wisconsin County Lac County County County County 2000 2000 2000 2000 2000 2000 Agriculture, Forestry, Fisheries, Mining 75,418 1,158 2,148 1,814 1,158 943 Percent employed 2.8% 1.9% 4.2% 4.2% 2.6% 1.5% Construction 161,625 3,290 3,325 2,566 1,909 4,602 percent employed 5.9% 5.5% 6.5% 6.0% 4.3% 7.1% Manufacturing 606,845 22,760 13,935 15,123 10,488 19,363 percent employed 22.2% 38.3% 27.1% 35.2% 23.7% 29.9% Transportation, Warehousing Utilities 123,657 1,690 2,539 1,910 1,291 2,364 percent employed 4.5% 2.8% 4.9% 4.4% 2.9% 3.7% Information 60,142 810 773 618 1,101 1,234 percent employed 2.2% 1.4% 1.5% 1.4% 2.5% 1.9% Wholesale Trade 87,979 1,479 1,365 1,052 1,848 2,514 percent employed 3.2% 2.5% 2.7% 2.4% 4.2% 3.9% Retail Trade 317,881 5,717 5,863 4,287 4,558 6,936 percent employed 11.6% 9.6% 11.4% 10.0% 10.3% 10.7% Finance, Insurance, Real Estate 168,060 2,490 2,120 1,392 3,527 4,055 percent employed 6.1% 4.2% 4.1% 3.2% 8.0% 6.3% Professional, Management, Administrative 179,503 2,879 2,495 1,642 4,580 4,254 percent employed 6.6% 4.8% 4.9% 3.8% 10.4% 6.6% Arts, Entertainment, Recreational Services* 198,528 3,844 3,250 2,714 2,583 3,410 percent employed 7.3% 6.5% 6.3% 6.3% 5.8% 5.3% Educational, Health, Social Services 548,111 10,228 8,930 7,209 9,219 10,802 percent employed 20.0% 17.2% 17.4% 16.8% 20.9% 16.7% Other Services (except public administration) 111,028 1,918 2,307 1,594 1,748 2,964 percent employed 4.1% 3.2% 4.5% 3.7% 4.0% 4.9% Public Administration 96,148 1,191 2,324 1,032 896 1,246 percent employed 3.5% 2.0% 4.5% 2.4% 2.0% 1.9% Total Employed Persons 2,734,925 59,454 51,374 42,953 44,203 64,687 Source: U.S. Census Bureau

Table 4-6 shows the trends of employment by industry from 1990 to 2000. The percent employed in the agriculture, forestry, fisheries, and mining industries has declined for Sheboygan County, as well as the other counties. The percent employed in retail trade has declined. The two areas with the largest increase between 1990 and 2000 were the arts, entertainment, and recreational services, and the education, health, and social service sectors.

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Table 4-6: Employment by Industry Over Time Sheboygan County Fond du Lac County Manitowoc County Ozaukee County Washington County Industry 1990 2000 1990 2000 1990 2000 1990 2000 1990 2000 Agriculture, Forestry, Fisheries, Mining 1,613 1,158 2,697 2,148 2357 1,814 826 1,158 1639 943 Percent employed 3.1% 1.9% 6.0% 4.2% 6.1% 4.2% 2.1% 2.6% 3.2% 1.5% Construction 2,273 3,290 2,025 3,325 1,901 2,566 1,736 1,909 3,416 4,602 percent employed 4.4% 5.5% 4.5% 6.5% 5.0% 6.0% 4.4% 4.3% 6.8% 7.1% Manufacturing 20,018 22,760 13,062 13,935 14,153 15,123 11,204 10,488 16,923 19,363 percent employed 38.4% 38.3% 29.1% 27.1% 36.9% 35.2% 28.7% 23.7% 33.5% 29.9% Transportation, Warehousing, Utilities 1,418 1,690 1,856 2,539 1,028 1,910 869 1,291 1,736 2,364 percent employed 2.7% 2.8% 4.1% 4.9% 2.7% 4.4% 2.2% 2.9% 3.4% 3.7% Information N/A 810 N/A 773 N/A 618 N/A 1,101 N/A 1,234 percent employed 1.4% 1.5% 1.4% 2.5% 1.9% Communications/Other Public Facilities 722 N/A 542 N/A 894 N/A 796 N/A 786 N/A percent employed 1.4% 1.2% 2.3% 2.0% 1.6% Wholesale Trade 1,751 1,479 1,679 1,365 1,067 1,052 2,018 1,848 2,389 2,514 percent employed 3.4% 2.5% 3.7% 2.7% 2.8% 2.4% 5.2% 4.2% 4.7% 3.9% Retail Trade 8,242 5,717 7,873 5,863 5,775 4,287 6,438 4,558 7,973 6,936 percent employed 15.8% 9.6% 17.5% 11.4% 15.0% 10.0% 16.5% 10.3% 15.8% 10.7% Finance, Insurance, Real Estate 2,292 2,490 1,733 2,120 1,155 1,392 2,773 3,527 3,014 4,055 percent employed 4.4% 4.2% 3.9% 4.1% 3.0% 3.2% 7.1% 8.0% 6.0% 6.3% Professional, Management, Administrative N/A 2,879 N/A 2,495 N/A 1,642 N/A 4,580 N/A 4,254 percent employed 4.8% 4.9% 3.8% 10.4% 6.6% Business and Repair Services 1,460 N/A 1,481 N/A 1,022 N/A 1,853 N/A 1,896 N/A percent employed 2.8% 3.3% 2.7% 4.7% 3.8% Personal Services 1,388 N/A 995 N/A 1,058 N/A 906 N/A 959 N/A percent employed 2.7% 2.2% 2.8% 2.3% 1.9% Arts, Entertainment, Recreational Services* 425 3,844 337 3,250 243 2,714 548 2,583 465 3,410 percent employed 0.8% 6.5% 0.8% 6.3% 0.6% 6.3% 1.4% 5.8% 0.9% 5.3% Educational, Health, Social Services 7,276 10,228 6,923 8,930 5,442 7,209 5,884 9,219 6,464 10,802 percent employed 13.9% 17.2% 15.4% 17.4% 14.2% 16.8% 15.0% 20.9% 12.8% 16.7% Other Services (except public administration) 2,303 1,918 2,156 2,307 1,641 1,594 2,590 1,748 1,933 2,964 percent employed 4.4% 3.2% 4.8% 4.5% 4.3% 3.7% 6.6% 4.0% 3.8% 4.9% Public Administration 978 1,191 1,543 2,324 645 1,032 659 896 905 1,246 percent employed 1.9% 2.0% 3.4% 4.5% 1.7% 2.4% 1.7% 2.0% 1.8% 1.9% Total Employed Persons 52,159 59,454 44,902 51,374 38,381 42,953 39,100 44,203 50,498 64,687 Source: U.S. Census Bureau 4-7 Sheboygan County Comprehensive Plan Adopted

Unemployment Rate The unemployment rate is the proportion of the civilian labor force that is currently unemployed. Persons not employed and not looking for work are not counted as in the labor force therefore not counted as unemployed. The unemployment rate provides a look at the state of the job market in a given area. If the unemployment rate is very low, it may mean there are not enough workers for the jobs currently available in the area, but if the unemployment rate is higher, it may mean there is an abundance of workers available for employment. Companies looking to expand operations seek areas with higher unemployment rates or excess labor. Continued high unemployment rates could be the result of a much greater problem that may indicate an under- skilled or under-educated workforce or an area that lacks sufficient infrastructure or capital investment to support economic expansion. Looking at Table 4-7, one can see that over the last four years Sheboygan County’s unemployment rate has been lower than the State of Wisconsin’s annual unemployment rate. Sheboygan County has seen a lower unemployment rate than neighboring Fond du Lac and Manitowoc Counties, but a higher rate than Ozaukee County. In the first few months of 2008, Sheboygan County’s unemployment rate has increased to nearly 4.5 percent, with Wisconsin’s rate reaching 5.1 percent, the highest since 2003.

Table 4-7: Unemployment Rate Year 2004 2005 2006 2007 Sheboygan County 4.5% 4.0% 4.0% 4.3% Fond du Lac County 4.7% 4.7% 4.7% 4.8% Manitowoc County 6.0% 5.0% 4.9% 5.3% Ozaukee County 3.7% 3.8% 3.6% 3.8% Washington County 4.5% 4.2% 4.1% 4.3% Wisconsin 5.0% 4.8% 4.7% 4.9% Source: Wisconsin Department of Workforce Development

ECONOMIC BASE Revenues by Industry Table 4-8 provides an overview of how much each industry contributes to the overall Sheboygan County economy. Note: It does not include agriculture. Manufacturing has and continues to be the cornerstone for the County’s economy by contributing over $1.1 billion or nearly 46 percent of the total income provided by all seven industries in 2000. The services industry grew at a healthy 300 percent in the last 20 years. Overall, income from all industries rose 218 percent, which indicates the local economy is strong and growing.

Table 4-8: Income by Industry Type*, 1980-2000 Area 1980 1990 2000 Percent Change Mining $3,103 $460 $144,488 -66.5% Construction $46,968 $72,230 $144,488 207.6% Manufacturing $353,475 $$627,749 $1,111,841 214.5% Transportation and Public Utilities $29,347 $52,116 $78,803 168.5% Trade $99,870 $161,679 $263,166 163.5%

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Table 4-8: Income by Industry Type*, 1980-2000 Area 1980 1990 2000 Percent Change Services $128,526 $266,633 $516,611 302.0% Government $78,183 $147,933 $238,412 204.9% Total $739,469 $1,328,800 $2,354,361 218.9% *Figures provided in thousands Source: Wisconsin Department of Commerce

Agriculture Agriculture remains an important economic ingredient in Sheboygan County. It includes hundreds of family-owned farms, agriculture related businesses and industries that provide equipment, services, and other products farmers need to process, market, and deliver food to consumers. The production, sales, and processing of these farm products generates significant employment income opportunities for residents.

According to the UW-Extension Agriculture Value and Impact Report, produced in 2004, agriculture in Sheboygan County provides almost 9,400 jobs, or about 12 percent of the County’s entire workforce. All agriculture activities account for $1.7 billion in economic activity. The direct effect of agriculture is $1.3 billion and this includes the sale of all farm products and value-added products. Agriculture also accounts for $485.2 million or 12 percent of Sheboygan County’s total income. The economic activity that is associated with Sheboygan County’s farms and agriculture-related businesses generate almost $44.2 million in local and state taxes, and this figure does not even include local property taxes that are paid to support schools.

Sheboygan County farmers also produce a diverse variety of products. Table 4-9 shows the sales by dollar value of the primary commodities of Sheboygan County in 2002.

Table 4-9: Sheboygan County’s Top Commodities, 2002 Commodity Sales by Dollar Value Milk $58.7 million Cattle & Calves $15 million Grain $13.9 million Other Animal & Products $7.3 million Vegetables $3.0 million Source: UW-Extension 2004

Tourism Nestled in between the shore of Lake Michigan and the Kettle Moraine State Forest, Sheboygan County has plenty to offer to everyone. Fueled by the lakefront revival, tourism is playing an increasing economic role in Sheboygan County. Businesses that cater to tourism such as resorts, motels, campgrounds, bed & breakfasts, and retail stores are expanding services to meet the diverse needs to the thousands of people that come to the County to take advantage of walking and biking trails as well as the many parks, golf courses, historic sites, festivals, and area attractions. In 2007, travelers spent $352,495,612 in Sheboygan County, which means Sheboygan County ranks 9th in tourist expenditures. In 2007, June through August is the highest

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quarter for tourist expenditures, when $142,757,214 or (40 percent) of the total tourism expenditures occur in Sheboygan County.

Major Employers in Sheboygan County Sheboygan County boasts a variety of large employers from both the public and private sectors. The public sector employers include local school districts and the County. The private industries are from a number of different sectors include manufacturing, construction, insurance companies, and food processing. In 2007, there are four employers within the County that have over 1000 employees (see Table 4-10). Two of the four are public agencies. Of the top ten companies by number of employees eight are private companies. Of the eight private companies six have their corporate headquarters in the County. The Kohler Company and Bemis Manufacturing Company are two of the largest employers in the County, and both have their corporate headquarters located here. With a diverse availability of employers in the County, the workforce is given a wide range of career opportunities.

Table 4-10: Sheboygan County’s Top 20 Employers by Number of Employees, 2007 Employer Type of Business Number of Employees Kohler Company* Enameled iron & metal sanitary 1000+ Employees ware mfg. Sheboygan Area School District Elementary & secondary schools 1000+ Employees Bemis Manufacturing Company* All other plastics product 1000+ Employees manufacturing County of Sheboygan Government Services 1000+ Employees J.L. French Automotive Castings* Aluminum die-casting foundries 500-999 Employees Aurora Medical Group Inc. Offices of physicians, except 500-999 Employees mental health Aurora Health Care Central Inc. General medical & surgical 500-999 Employees hospitals Sargento Foods Inc.* Cheese manufacturing 500-999 Employees Acuity* Direct property & casualty insurers 500-999 Employees Johnsonville Sausage* Meat processed from carcasses 500-999 Employees Rockline Industries Inc.* Converted paper product 500-999 Employees manufacturing Fresh Brands Distributing Inc.* Managing offices 500-999 Employees Wal-Mart Associates Inc. Discount department store 500-999 Employees St. Nicholas Hospital General medical and surgical 500-999 Employees hospital Locate Staffing Inc.* Temporary help services 500-999 Employees City of Sheboygan Government Services 500-999 Employees Plymouth Joint School District Schools 250-499 Employees Dairy Farmers of America Inc. Cheese manufacturing 250-499 Employees The Vollrath Co.* Kitchen utensil, pot and pan 250-499 Employees manufacturing Times Printing Co. Inc.* Commercial lithographic printing 250-499 Employees Source: Wisconsin Department of Workforce Development *Corporate Headquarters located in Sheboygan County

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Employment by Economic Division To understand the future employment trend in Sheboygan County, an understanding of the county’s economy is required, as detailed in the following Location Quotient Analysis and Threshold Analysis findings. The Economic Base Analysis technique divides the economy into basic and non-basic sectors. The basic sector is made up of local businesses that are dependent on external factors. Manufacturing and local resources-oriented firms (like logging or mining) are usually considered to be basic sector firms because their fortunes depend largely upon non- local actors, and they usually export their goods. The non-basic sector, in contrast, is composed of those firms that depend largely upon local business conditions. Economic Base Theory asserts that the means of strengthening and growing the local economy is to develop and enhance the basic sector, because it brings in wealth from outside the community.

There are nine basic economic divisions that are used for Economic Base Analysis. There are four goods-producing sectors: 1) agriculture, forestry, and fishing; 2) mining; 3) construction; and 4) manufacturing. There are five services-producing sectors: 1) transportation and public utilities; 2) wholesale trade; 3) retail trade; 4) finance, insurance, and real estate; and 5) services.

Location Quotient Analysis The Location Quotient Analysis technique compares the local economy, Sheboygan County, to the United States. This allows for identifying specializations in the Sheboygan County economy (Figure 4-11). If the Location Quotient (LQ) is less than 1.0, all employment is considered non- basic and that industry is not meeting local demand for a given good or service. An LQ equal to 1.0 suggests that the local employment is exactly sufficient to meet the local demand for a given good or service; employment is still considered non-basic. An LQ greater than 1.0 suggests that local employment produces more goods or services than the local economy can use; therefore, these goods and services are exported to non-local areas, which makes them basic sector employment.

Figure 4-11: Employment by Industry Group, 1990-2000, Sheboygan County & U.S., LQ Analysis Percent Sheb. Co. Sheboygan United States Change Location County 1990-2000 Quotient Item 1990 2000 1990 2000 Sheb. U.S. 1990 2000 Total full-time and part-time 62,505 76,317 139,426,900 167,465,300 22.10 20.10 -- -- employment Farm Employment 1,849 1,574 3,153,000 3,103,000 -14.90 -1.60 1.31 1.11 Nonfarm Employment 60,656 74,743 136,273,900 164,362,300 23.20 20.60 0.99 1.00 Private employment 54,850 68,247 11,507,790 141,621,300 24.40 23.10 1.06 1.06 Ag. Services, forestry, 436 762 1,453,000 2,166,800 74.80 49.10 0.67 0.77 fishing and other Mining 38 49 1,044,100 795,400 28.90 -23.80 0.08 0.14 Construction 2,483 3,707 7,260,800 9,604,300 49.30 32.30 0.76 0.85 Manufacturing 22,224 27,394 19,697,200 19,106,900 23.30 -3.00 2.52 3.15 Transportation & public 1,974 2,310 6,568,600 8,247,100 17.00 25.60 0.67 0.61 utilities Wholesale trade 1,846 2,255 6,711,500 7,584,900 22.2 13 0.61 0.65

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Percent Sheb. Co. Sheboygan United States Change Location County 1990-2000 Quotient Item 1990 2000 1990 2000 Sheb. U.S. 1990 2000 Retail trade 9,843 10,896 22,920,500 27,344,100 10.7 19.3 0.96 0.87 Finance, insurance, and 3,382 4,288 10,712,600 13,495,100 26.8 26 0.7 0.7 real estate Services 12,624 16,586 38,709,600 53,276,700 31.4 37.6 0.73 0.68 Source: U.S. Department of Commerce, Bureau of Economic Analysis

Threshold Analysis Export Base (Basic Employment) There are two areas within the 2000 Sheboygan County economy that can be considered basic employment areas: farm employment and manufacturing. These two areas produce more goods and services than the local economy can use. When Location Quotients increase over time, this suggests that the economy is getting closer to reaching and exceeding the local demand. Having basic employment also suggests that if a downturn in the local economy occurs, these sectors will not be strongly affected because they are more dependent on the non-local economies. Having strong basic sector employment and industry, will strengthen the local economy.

Non-Basic Employment Industry Under private employment, there are eight areas that can be considered non-basic: agriculture services, forestry, fishing and other; mining; construction; transportation and public utilities; wholesale trade; retail trade; finance, insurance, and real estate; and services. These industries are not meeting local demand for a given good or service. For example, the transportation and public utilities industry, retail trade industry and the services industry’s LQ actually decreased since 1990. However, it is reasonable to believe the Sheboygan County’s economy could support more of these industry types.

STRENGTHS AND WEAKNESSES Certain factors about a community, some of which are beyond its control, may greatly influence the future economic climate over the next two decades and thus are important for the County to identify as part of this Plan. This will allow residents to understand the County’s continued economic viability and future drawing power for new businesses. This portion of the chapter gives a perspective from a business owner’s point of view. It reflects concerns, issues, and questions that current and future business owners might ask about the County when formulating a plan, relocating or expanding their business.

Strengths While this is not an exhaustive list, it contains the major strengths for Sheboygan County from and economic development perspective or employers perspective.

• Sheboygan County residents are skilled and educated • There is an available skilled and educated employment base for companies • Educational opportunities for employees at Lakeshore Technical College, UW- Sheboygan, Lakeland College, etc.

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o LTC is very responsive to the training needs for business in the community, including having training in high speed packaging, biotech training, a renewable energy wind technology training that is the only one of its kind in the state o UW-Sheboygan has recently developed an engineering program and has begun to offer more bachelor’s degrees • High level of elementary, high, and secondary schools in the County • Land available in industrial and/or business parks for expansion or relocation • Transportation facilities provide for easy movements of goods, services, and people. o Located along I-43 o Rail service available o Airport in the County o Shipping available due to Lake Michigan o Designated Federal and State Spaceport o Public (Bus) Transportation is available in the Cities of Sheboygan, Sheboygan Falls and Kohler. • Availability of Community Development Block Grant (CDBG) and Revolving Loan Funds • Low power costs • Home to many Multi-National Corporate Headquarters • Over 130 corporations are conducting international trade • Cooperation with the State to access funding • Cooperative municipalities and communities working with employers • Many agri-businesses and plastics industries are located in the County • Proximity to several different growing market/population centers (1 hour north of Milwaukee, 1 hour south of Green Bay) • Access to Lake Michigan water and the location of the entire County east of the Great Lakes Watershed Divide. This location ensures that all communities will have access to Lake Michigan water in the future and lessens dependency on other sources of water, such as groundwater. The County is also better able to accommodate industries that use large volumes of water than areas that rely on groundwater as their only water source • Protection of Lake Michigan resources through the Great Lakes Compact • An abundance of cultural arts, including visual and performing arts • World class sporting events, including golf courses, race tracks, an Olympic sailing center, and surfing • Many recreational opportunities available throughout the County • Mix of city and rural, small-town atmosphere municipalities • Strong community involvement and volunteerism • Aesthetically pleasing areas, with many amenities o World class marina o Conference center o Nearly 2,000 hotel rooms for conferences and training o Only 4 star hotel in the state o Nonmotorized transportation facilities • Regularly recognized with national accolades for quality of life • Extremely low crime rate

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Weaknesses While this is not an exhaustive list, it contains the major weaknesses for Sheboygan County from and economic development perspective.

• Sheboygan County’s air quality is monitored and can fluctuate, predominately due to a regional impact from out of state businesses • The location along the Lake Michigan shoreline cuts the County’s business radius to the East, yet allows for waterfront business opportunities • Aging of the County’s workforce population • Concentration of employment in a few job sectors, could be subject to swings in the economy, so broadening and diversifying the employment base will reduce this as an issue

SITES FOR BUSINESS AND INDUSTRIAL DEVELOPMENT Existing Site Inventory and Analysis Commercial/Industrial Uses Sheboygan County has a wide variety of locations of business and industrial parks, with more in the planning stage. These business and industrial parks tend to be in Sheboygan County’s cities, villages, and the urban towns. The three cities within Sheboygan County all have at least one industrial park that has land available. These business or industrial parks are serviced by water, sewer, gas, and electricity. All business parks are within a 3-mile radius of a major highway. Business or industrial parks are located in the Cities of Plymouth, Sheboygan, and Sheboygan Falls, the Villages of Cedar Grove, Kohler, Oostburg, Random Lake, and the Towns of Sheboygan and Wilson. Map 4-1 shows the location of the industrial or business parks within the County. Table 4-12 shows if parcels are available for development in the industrial/business parks. As these business and industrial parks become filled, it is important that communities plan for and pursue the expansion of existing parks and the development of lands for future industrial and business sites. It is also important that the communities evaluate the potential for infill development on vacant land that has infrastructure in place, including utilities and services. These properties may be available for redevelopment, and in some cases, reclamation work can be done to make brownfield sites available for development. A prominent brownfield site that were recently redeveloped is the old C. Reiss Coal Company, which is now home to Blue Harbor Resort & Conference Center and many retail stores.

Table 4-12: Industrial or Business Park Sites, 2008 Available Utilities Available Park Name Size (acres) Water Sewer Gas Electricity Parcels for Development Village of Cedar Grove Business Park 25 Y Y Y Y Y Village of Oostburg Business Park 122 Y Y Y Y Y Village of Random Lake Industrial Park 53 Y Y Y Y N Kohler Company Industrial Park 450 Y Y Y Y Y Sheboygan South-Side Industrial Park 200 Y Y Y Y N Town of Sheboygan Business Center 21.71 Y Y Y Y Y Sheboygan Business Center 337 Y Y Y Y Y

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Available Utilities Available Park Name Size (acres) Water Sewer Gas Electricity Parcels for Development Sheboygan Falls Industrial Park 75 Y Y Y Y N* Vision Business Center 72 Y Y Y Y Y Plymouth Industrial Park-North 115 Y Y Y Y N Plymouth Industrial Park-South 160 Y Y Y Y N Plymouth Industrial Development 225 Y Y Y Y Y Corporation Park Source: Sheboygan County Chamber and various industrial parks. *Various sizes of buildings do become available for occupancy.

Sheboygan County also has scattered areas available for commercial development. Some of these areas may be adjacent to Deer Trace Shopping Center, Plankview Green Lifestyle Center (retail), South Pier District, Harbor Business Center, Gateway Plaza, Taylor Heights, and various other scattered commercial and industrial sites throughout the County. Many of the Cities, Villages, and Towns in Sheboygan County have land or commercial spaces available along the major transportation corridors of Interstate 43 or Highways 28, 32, 42, 57, 67, or 144. For a more detailed look at the individual municipalities open commercial and industrial sites, individual municipalities’comprehensive plans should be referenced.

Sheboygan County also will have land and infrastructure available at the Sheboygan County Memorial Airport for air transportation related development.

Sheboygan County is also part of the 18 county region in Northeast Wisconsin. This brand is named New North and its a 501(c)3 corporation fostering collaboration among private and public sector leaders throughout Northeast Wisconsin. The mission of New North is to harness and promote the region's resources, talents and creativity for the purposes of sustaining and growing our regional economy. Another way that one can see what properties or structures are vacant and available for development is by using the Location One Information System (LOIS). This system provides a wealth of information on an area, including demographics, quality of life indicators, major local businesses, and scalable maps. Most importantly, however, it lists business buildings and sites that are available for lease or purchase. The one drawback of this system is that it is self-selecting, so all available properties or structures may not be listed.

New North has also developed initiatives relating to the economy to improve on or try to obtain. These include: technology, finance, workforce, education, quality of life, and modernization of agriculture.

Environmentally Contaminated Sites In addition to those place listed above for development, there are opportunities for redevelopment to occur in some areas with environmental contamination. In 2004, Sheboygan County had a brownfield site very successfully remediated to create a hotel/conference center and many other businesses. Brownfields are sites defined as abandoned, idle, or underutilized industrial or commercial facilities where expansion or redevelopment is complicated by environmental contamination. The WDNR Bureau of Redemption and Redevelopment (BRR)

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[Map 4-1: Business or Industrial Parks]

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oversee the investigation and clean up of environmental contamination and the redevelopment of contaminated properties. The WDNR divides the type of environmentally contaminated sites into eight different activities. These activities are: abandoned container, leaking underground storage tank (LUST), an environmental repair (ERP), spills, voluntary property liability exemptions (VPLE), general property, superfund, and no action required. Each contaminated site has a status on its progress towards cleanup. There are four status categories that are applicable to all activities, except for the general property and no action required categories. These status categories are open, conditionally closed, closed, and historic spill. If a site is listed as open it means the activities are in need of clean up or cleanup is still underway. The conditionally closed status refers to activities where cleanup activities were approved, but the site closure will not be approved pending receipt of documentation of abandonment of wells or the disposal of soil. The closed status signifies when an investigation and cleanup of activities (sites) has been completed and the State has approved all cleanup actions. A final status category is the historic spill category, which is when a spill cleanup may have been completed prior to 1996, but there is no end date shown on the cleanup. More detail on all contaminated sites’ activity and status can be found on the WDNR’s BRR website.

Abandoned Container In Sheboygan County there have been 12 sites classified as abandoned containers, of this only one has been “closed.”

Leaking Underground Storage Tank (LUST) A Leaking Underground Storage Tank (LUST) site has contaminated soil and/or groundwater with petroleum, which includes toxic and cancer causing substances. However, given time, petroleum contamination naturally breaks down in the environment (biodegradation). Some LUST sites may emit potentially explosive vapors. According to the WDNR list of Leaking Underground Storage Tank’s (LUST) sites, Sheboygan County has 453 (461) of which 30 remain “open” and eight remain “conditionally closed.” This means 38 or 8.2% are still in need of some type of remediation. The locations of the LUST sites that are classified as “open” are shown in Map 4-2.

Environmental Repair (ERP) Another category of contaminated sites is the environmental repair (ERP) sites. ERP sites are sites other than LUST’s that have contaminated soil and/or groundwater. Examples include industrial spills (or dumping) that need long term investigation, buried containers of hazardous substances, and closed landfills that have caused contamination. The ERP module includes petroleum contamination from above-ground (but not from underground) storage tanks. There are 151 activities classified as ERP sites in Sheboygan County. Of these sites 57 remain “open”, four have “conditional closures”, and 90 are “closed.” The location of the open ERP sites are shown on Map 4-2.

Spills Spills are a discharge of a hazardous substance or substances that may adversely impact, or threaten to adversely impact public health, welfare, or the environment. Spills are usually cleaned up quickly which means very few are classified as open. There have been 588 spills over time and only 11 of these spill sites remain “open.”

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[Map 4-2: Environmentally Contaminated Sites]

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Voluntary Property Liability Exemptions (VPLE) Voluntary Property Liability Exemptions are an elective process in which a property owner conducts an environmental investigation and cleanup of an entire property and then receives limits on future liability for that contamination under s. 292.15, Wisconsin Statutes. An individual, business or unit of government can receive the liability exemption after a completed cleanup is approved. There are nine total sites in this category, but two of the site are closed with an additional two listed as having conditional closure.

Superfund Superfund is a federal program to finance cleanup of the nation’s worst contaminated sites listed on the National Priorities List. There are two Superfund sites within Sheboygan County. One of the sites is the Sheboygan Harbor & River Site. This site was placed on the national listing June 10, 1986. The remedy design has been selected and the remedy construction is underway, but is not yet complete on this site.

The other Superfund site located in the County is the Kohler Co. Landfill. This site is also listed on the final national priority list; it was placed on this list on September 21, 1984. The Kohler Co. Site completed remedy construction in 1998 and now the site is reviewed every five years. Even thought progress has been made, both sites still remain on the National Priority Listing.

No Action Required This activity means there was or may have been a discharge to the environment and, based on the known information, the DNR has determined the responsible party does not need to undertake an investigation or cleanup in response of that discharge. There are about 284 sites classified under this activity in Sheboygan County.

Refer to the BRR Tracking System on the WDNR website for further information on the contaminated sites in Sheboygan County.

COMMUNITY FINANCES A community must be concerned about its ability to generate sufficient public revenues to provide the types and levels of services expected by its citizens. Table 4-13 provides a history of the taxes levied in Sheboygan County, as officially reported to the Wisconsin Department of Revenue.

Sheboygan County’s total property tax from 2001 to 2007 increased from $144,880,839 to $180,657,128, or nearly 25 percent. The County’s share of the total property tax has increased from $36,354,621 to $44,861,212 or 23 percent. This is a slower rate of increase than the overall total property tax. This means that the County’s share of the total property tax has decreased since 2001. Between 2006 and 2007, the County lowered the dollar amount of property tax that was levied, the only time that occurred in the last seven years. Sheboygan County was also able to lower their property tax levy in 2008 and was the only county in Wisconsin to do so for both years.

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Table 4-13: Recent History of Property Taxes Levied, Sheboygan County County Share of Year Total Property State Property Property Tax Levied Tax Tax Credit Number Percent 2008 $183,261,601 $44,331,717 24.2% $13,697,093 2007 $180,657,128 $44,861,212 24.8% $12,384,922 2006 $173,240,997 $45,412,903 26.2% $10,963,722 2005 $167,679,743 $44,371,503 26.5% $8,769,743 2004 $165,595,761 $42,959,690 25.9% $8,876,761 2003 $155,282,520 $41,078,875 26.5% $9,015,256 2002 $149,928,344 $39,122,822 26.1% $9,149,334 2001 $144,880,839 $36,654,621 25.3% $9,190,702 Source: Wisconsin Department of Revenue, City, Village, and Town Taxes, for years cited.

As shown in Table 4-14, the full-equalized value of property within the County has increased from $5,900,119,100 to $8,381,757,200 or 42 percent from 2001 to 2006. The County’s existing debt has decreased in the last few years, but its close to the same level as 2001. The changes in the County’s debt margin has increase by over $100,000,000 from 2001 to 2006.

Table 4-14: Recent History of Full Value and Public Indebtedness, Sheboygan County Year Full Value Debt Limit Existing Debt Debt Margin 2008 $9,243,401,600 $462,170,080 $31,280,000 $430,890,080 2007 $8,917,700,600 $445,885,030 $30,510,000 $415,375,030 2006 $8,381,757,200 $419,087,860 $38,795,000 $380,292,860 2005 $7,759,893,900 $387,994,695 $40,020,000 $347,974,695 2004 $7,105,486,900 $355,274,345 $46,025,000 $309,249,345 2003 $6,665,403,800 $333,270,190 $39,941,320 $293,328,870 2002 $6,274,228,500 $313,711,425 $45,692,957 $268,018,468 2001 $5,900,119,100 $295,005,955 $39,119,003 $255,886,952 Source: Wisconsin Department of Revenue, Bureau of Local Finance Assistance, Equalized Value and Debt Limit Value, for years cited.

The ability to finance community projects is measured in general obligation debt capacity. According to the Wisconsin Constitution, there are limits on how much a municipality may borrow. Municipalities are limited to an amount equal to 5 percent of the equalized value, or full value, of the unit of government. As indicated by Table 4-13, Sheboygan County’s total general obligation debt as of December 31, 2004 was $38,795,000, which is less than 0.5 percent of its full value. This means overall the municipalities in Sheboygan County have a high debt margin and are conservative in their borrowing.

ECONOMIC DEVELOPMENT PLANS, PROGRAMS, AND RESOURCES Regional Comprehensive Economic Development Strategy (CEDS) The Economic Development Administration (EDA) of the U.S. Department of Commerce invests in public works and economic development, economic adjustment assistance, research, local technical assistance, planning, and trade adjustment assistance. EDA investment priority is

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with those projects that enhance regional competitiveness and support long-term development of the regional economy. Eligible EDA applicants are states; city and local governments; Indian Tribes; colleges and universities; nonprofit organizations; and economic development districts. The initial Commission OEDP or CEDS was prepared in 1978 and approved by the Assistant Secretary of Commerce in 1979. The Bay-Lake Regional Planning Commission was designated by EDA as an Economic Development District in 1979. The purpose of the Comprehensive Economic Development Strategy (CEDS) is designed to bring together the public and private sectors in the creation of an economic roadmap to diversify and strengthen the regional economy and to qualify the region for other EDA assistance. The CEDS analyzes local and regional economies and serves as a guide for establishing regional goals and objectives, developing and implementing a regional plan of action, and identifying investment priorities and funding sources. The CEDS also documents the District’s economic development activities and changing conditions on an annual basis. Bay Lake Regional Planning Commission prepares the annual economic development work program to help achieve the goals and objectives outlined in the Comprehensive Economic Development Strategy. The goals for this area are: • Increase long term employment opportunities that utilize the diverse skills of the District’s labor force. • Improve community facilities and services needed to foster economic growth in the rural and urban areas of the District. • Promote the wise use and conservation of natural resources. • Encourage planning efforts that will guide and promote regional economic development. • Increase investment opportunities.

Lakeshore Technical College’s (LTC) Strategic Plan: EnVision 2015 LTC’s EnVision 2015 Plan includes a broad strategy to unit partners in alliances to leverage opportunities, with specific objectives to focus on strategy-driven community relationships, expanding educational partnerships to maximize value and opportunities for students. More information on LTC can be found in Appendix 8: Economic Development Programs and Resources.

There are a number of programs and resources available on each government level designed to help build economic development capacity through infrastructure expansion and to offer resources necessary to develop and grow business. Please see Appendix 8: Economic Development Programs and Resources for a listing of these programs.

SUMMARY o Educational attainment levels need to be improved slightly. Sheboygan County has a smaller percent of its residents obtaining higher levels of education such as a bachelor’s degrees or higher (17.9%) than the State of Wisconsin (22.5%) and the United States (24.4%). o Nearly 88 percent of Sheboygan County residents work in Sheboygan County. o Between 1989 and 1999, Sheboygan County’s median household income saw an increase of 46 percent or about $15,000. All surrounding counties saw larger percent increases in their median household income in the same time frame. o Sheboygan County has over 37 percent of its jobs in the manufacturing sector, while Fond du Lac, Ozaukee, and Washington Counties have around 25 percent in this sector.

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Manufacturing jobs play a vital role in Sheboygan County’s job force, so policies will need to focus on this area. o Sheboygan County’s unemployment rate, ranging from 4.0 percent to 4.5 percent, has been steadily lower than the State of Wisconsin’s. Sheboygan County has had a lower unemployment rate from 2004 to 2007 than all surrounding counties, expect for Ozaukee County. o Sheboygan County’s average annual wage is $35,946, while the State of Wisconsin’s average wage is $36,830. Sheboygan County’s average annual wage is higher than Fond du Lac, Manitowoc, and Washington Counties’ average wage. o Manufacturing has and continues to be the cornerstone for the County’s economy by contributing over $1.1 billion or nearly 46 percent of the total income provided by all seven industries in 2000. o Agriculture and tourism both play significant roles in Sheboygan County’s economy. Both sectors offer jobs and revenue for the County. The tourism industry continues to grow in Sheboygan County. o Of the top ten companies, by number of employees, eight are private companies. Of these eight companies, six have their corporate headquarters in Sheboygan County.

ECONOMIC DEVELOPMENT STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

Economic Development Goals, Objectives, Policies, and Programs Goal 1: Identify and encourage diverse and sustainable businesses and job development. Objective: Encourage and support an economic development corporation to serve Sheboygan County. Policy/Program: Identify processes to encourage cooperation and coordination rather than competition among Sheboygan County communities when locating large economic development projects. Policy/Program: Explore the possibility of intercommunity support as a way to encourage economic development cooperation between units of government.

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Objective: Promote and enhance farming as a long-term economic activity and promote steps to sustain its long-term economic viability. Policy/Program: Continue to work with the UW-Extension and local schools to support youth farming related programs, as well as to develop an educational program that outlines grants and loans available through Federal and State agencies for youth programs, including 4-H Clubs and FFA. Policy/Program: Work with the UW-Extension to provide information to farmers on succession planning. Policy/Program: Support economic initiatives to ensure farming remains viable in Sheboygan County, including funding programs, agri-tourism, and direct marketing of farm products. Policy/Program: Support green tier and agricultural businesses, which participate in green tier. Objective: Support the Sheboygan County Chamber of Commerce and local chambers of commerce in the promotion of economic growth. Policy/Program: Promote and encourage programs that help current businesses remain viable, as well as, attracting new businesses to Sheboygan County. Policy/Program: Work with the Chambers to see what services or programs are most vital to the business community. Objective: Support volunteer entities, as they make a large impact on the County’s economic development, such as United Way, Junior Achievement, etc.

Goal 2: Promote an adequate number of jobs accessible to Sheboygan County residents to serve the County’s estimated projected population for 2030 of 133,000 persons. Objective: Encourage business development that matches the talent and diverse educational attainment of residents within the County. Policy/Program: Continue to administer the Sheboygan County Revolving Loan Fund and the Community Development Block Grants to create employment opportunities and provide a means to finance new and existing businesses in the County. Policy/Program: Study the use of State and Federal bio-energy grants to promote agriculture and associated agricultural industries in the County. Policy/Program: Develop and distribute educational materials regarding various funding and incentive opportunities available for businesses located in Sheboygan County or wishing to relocate to the County. Policy/Program: Study the development of employer health care purchasing tools in Sheboygan County; this may include health care purchasing pools. Objective: Encourage business development that provides sufficient income for its employees. Policy/Program: Promote the retention of manufacturing, agricultural, finance and insurance, health care, professional and technical services, tourism, and other service sector jobs in Sheboygan County. Policy/Program: Continue the Chamber’s business retention survey, and be responsive to the results.

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Goal 3: Promote an adequate supply of workers to meet the employment needs of businesses located in the County through 2030 and beyond. Objective: Promote educational programs to prepare workers for jobs in the businesses and industries in Sheboygan County. Policy/Program: Continue a high level of education in order to employees to meet the diverse employment opportunities. Policy/Program: Develop a workforce response team that will help employees get in a position to find employment. Policy/Program: Continue (or Seek) partnerships with SEEK, Manpower, the Workforce Development Center, the Job Center, United Way, and the Chamber to advertise and help employees gain employment opportunities in Sheboygan. Objective: Encourage continued cooperation between schools and the business community to provide continuing educational programs that provide the County's labor force with the skills necessary for the changing dynamics of County’s employers. Policy/Program: Continue the support of the local colleges and universities (LTC, UW-Sheboygan, and Lakeland College) in providing retraining and continuing educational opportunities for employees. Policy/Program: Develop a plan to fully engage and involve young people/professionals in all aspects of the community and in civic matters. Objective: Encourage a wide range of housing types to provide viable housing options for the County's workforce. Policy/Program: Partner with the appropriate organizations to study and educate local government officials and staff about the use and availability of Community Development Block Grant (CDBG) funds. Policy/Program: Support the use of tax incremental financing (TIF) districts to encourage redevelopment of under-used and blighted areas for a mix of businesses and affordable housing. This will encourage people living where they work. Objective: Promote a wide range of transportation options to increase workers' accessibility to jobs. Policy/Program: Continue operation of the Sheboygan Transit buses and when needed look to expand. Policy/Program: Encourage the concept of the “complete street” in urban and urban fringe areas. Complete street’s concepts include sidewalks, paved shoulders, bike lanes, roads, etc.

Goal 4: Promote businesses and industries to be good stewards of land, air, water, and energy resources. Objective: Work with businesses and industries to identify ways to provide cost-effective energy. Policy/Program: Provide educational and informational opportunities on new technologies and techniques to provide cost-effective energy. Policy/Program: Explore the use of alternative energy sources, in order to reduce emissions to the air, land, and water.

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Objective: Encourage continued coordination among energy users and energy providers to ensure the conservation and cost-effective use of energy. Policy/Program: Encourage the use of State and Federal energy grants to promote the conservation of and the use of alternative energy in the County. Objective: Partner with local communities to utilize natural resources for economic development, while not adversely impacting these resources. Policy/Program: Work to utilize alternative energy sources that would not pose an adverse impact to the County’s natural resources.

Goal 5: Broaden the County’s tax base and strengthen its economy and employment base through the retention and expansion of existing businesses, and the attraction and development of new diverse businesses. Objective: Identify growing and declining business sectors of the Sheboygan County economy in order to target local economic development opportunities. Policy/Program: Continue Chamber programs, such as retention calls, in order to help identify economic development opportunities. Policy/Program: Develop economic development programs that enhance our relevant business sectors. Policy/Program: Support the creation of a business incubator program(s) and facility(ies). Policy/Program: Support and initiate county industrial and commercial development. Objective: Support and participate in regional economic development plans, organizations, and programs, in order to impact economic growth in Sheboygan County. Policy/Program: Continue participation in regional organizations, such as North East Wisconsin Regional Economic Planner (NEWREP) and the New North. Policy/Program: Promote the use of commercial listing systems for businesses. Objective: Encourage careful planning and diversification of commercial and industrial uses in appropriate locations in the County. Policy/Program: Work with the County and other private sector groups to develop new businesses and retail stores in areas properly zoned or in designated commercial areas shown on the local municipalities’ Future Land Use Plans. Policy/Program: Encourage economic development in areas that would be compatible with adjacent land uses and easily accessible.

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Goal 6: Promote tourism in the County by capitalizing on tourism amenities, including historical, cultural, archaeological, architectural, recreational, and natural resources. Objective: Promote four season tourism in Sheboygan County. Policy/Program: Promote the non-motorized facilities in the County. Policy/Program: Promote the tourism value of the local businesses. Policy/Program: Support Sheboygan County’s Chambers of Commerce tourism programs. Policy/Program: Promote a cooperative effort in promoting tourism (e.g. programs, activities, facilities) in Sheboygan County. Policy/Program: Continue to link Sheboygan County’s website with local tourism websites. Policy/Program: Continually update and expand comprehensive tourism and recreation maps (printed and online) of Sheboygan County. Objective: Preserve historical, archaeological, architectural, and cultural resources that attract tourists to the County. Policy/Program: Provide a map of the cultural, archaeological, architectural, and historical sites on a county-wide level. Policy/Program: Encourage tourist and residents to attend the Sheboygan County Museum and other area historical and cultural sites or business. Policy/Program: Encourage the integration of local art in public places. Policy/Program: Identify and promote the local artistic resources (e.g. galleries, museums, sculpture gardens, performing arts, etc.) Objective: Preserve the natural environment, by encouraging eco-friendly (low-impact) tourism, in environmentally sensitive areas. Policy/Program: Encourage less intrusive forms of transportation in environmentally friendly areas. Policy/Program: Promote mapping and distribution of brochures of Sheboygan County’s non-motorized facilities and related businesses. Policy/Program: Encourage the least amount of disturbance in areas that are high in natural beauty or have unique biodiversity.

Goal 7: Allow small scale economic development through home-based businesses. Objective: Encourage small-scale economic development that is neighborhood friendly and supports the local character and natural resources of the community. Policy/Program: Develop supportive tools and regulations, as needed.

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CHAPTER 3 – HOUSING AND POPULATION INTRODUCTION Housing a growing and ever-changing population presents both challenges and opportunities to Sheboygan County and its local units of government. As presented in the Issues and Opportunities Chapter, Sheboygan County’s population is growing and changing as new residents continue to move into Sheboygan County, “baby-boomers” approach retirement age, and the population becomes more diverse. Providing a range of housing choices for these and all other population segments is very important in order to keep the local communities and Sheboygan County growing and vibrant.

Housing is sometimes taken for granted by community planners. This is unfortunate, because quality housing is not only a basic human need, it attracts and retains workers, drives population growth, forms a major part of a community’s image, and provides stability in a community. On an individual level, a home is usually the single largest expenditure most residents make in their lifetimes. This chapter will build on the housing information contained in the Issues and Opportunities chapter, by discussing the status of housing in the County, identifying priority issues, and recommending possible ways to address those issues.

POPULATION CHARACTERISTICS Population Trends Based on the historical trends, the Wisconsin Department of Administration (WisDOA) projects Sheboygan County’s population to increase by 18 percent from 2000 to 2030. The Bay-Lake Regional Planning Commission’s 2007 Share-of-Growth projection shows the County’s population growing by 22 percent from 2000 to 2035. An important population trend is that close to 30 percent of the County’s population is projected to be 55 or over by 2030. Elderly residents with limited incomes, needs for specialized services, or subsidized housing may begin moving to larger communities in Sheboygan County that are better able to meet their needs. The historical trends and projected population are shown in greater detail in Chapter 1: Issues and Opportunities.

Age and Sex Distribution by Decade Population Figure 3-1 represents the distribution of age and gender from 1990 to 2000 for Sheboygan County. When comparing the 1990 age distribution to the 2000 age distribution, it is helpful to remember that a particular age group in the 1990 chart shows up 10 years later in the 2000 chart. The age sector with the largest population in 2000 was the 40 to 44 age group. They made up over 8.5 percent of the total population in 2000. In 1990 the largest percent of the population (8.6 percent) was in the 30 to 34 age group. This shows that residents stayed around between the two decades.

In 1990, the age group having the second largest percent of the population was between 35 and 39, but ten years later this age group would have been 45 to 49 and they only constituted the third largest age group. The second largest age group in 2000 was the 35 to 39 age group. This demonstrates that Sheboygan County’s population in the 35 to 39 age range replenishes because in 1990 the 25 to 29 age category was only the third largest.

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One of the most notable observations is that the percent of the population that is female in Sheboygan County has dropped from 1990 to 2000. In 1990, 50.4 percent of the population was female compared to 49.8 percent in 2000. Numerically, in 1990 there were over 1,000 more females than males, but in 2000 there were 350 more males than females. This trend is also occurring to a smaller extent in the 8-County Bay-Lake Region. In 1990, there were nearly 10,000 more females than males, but in 2000 there were only 2,000 more females than males. The State is also seeing a similar trend. In 2000, 50.6 percent of the population was female compared to 1990 when 51.1 percent of the population was female. It appears there is a trend that females are becoming a smaller segment of the total population in the County, Region, and State.

The data in Figure 3-1 shows that the majority of those residents that were pre-school or elementary school age in 1990 remained in the County over the course of their school years. In 1990 there were 3,936 males and 3,945 females between the ages of 5 and 9. Ten years later in 2000 there were 3,734 males and 3,317 females between the ages of 15 and 19. This is interesting because there was only a decrease of 200 males, but the female population decreased by 600 during this ten year period. This helps to show the trend of a larger decrease in the female population.

It appears that Sheboygan County loses some of its population once teenagers reach adulthood and can move away. This may be due to the fact that people in their late teens and early 20s are heading to college and relocating for work. The trend of the population leaving does not seem to continue as individuals reach their 30s. In 1990, 6,813 people were in the County between the ages of 25 and 29, but ten years later there were 8,385 people in the County between the ages of 35 and 39, this is a 23 percent jump in a decade. This trend appears to show that living in the County becomes more attractive once residents reach their 30s and begin to raise families.

Residents who were in their 30s in 1990 (17,981) stuck around into their 40s in 2000 (18,090). Some of the residents in their 40s and 50s in 1990 (21,687) left Sheboygan County before reaching their 50s and 60s in 2000 (20,363).

Sheboygan County’s population in their 60s in 1990 was 8,875 people; however, 10 years later, in 2000, the population in their 70s had risen to 11,943. This is a 35 percent increase in this age cohort in a decade. The aging population is making a large impact, possibly even larger than 35 percent with consideration that people may have moved or died between 1990 and 2000; Sheboygan County appears to be seeing a larger number of people moving to the area, than leaving. The increase in age is in part due to the rise in life expectancy, which is influenced by the advancements in health care. Sheboygan County has many of the services and amenities the aging population needs, it is just a matter of moving towards the cities and villages in order to have access to these services.

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Figure 3-1: Age and Gender Pyramids, 1900 & 2000

Age and Gender Distribution 1990

75 &Up 2,460 4,509 70 - 74 1,640 2,197 65 - 69 Male 1,959 2,369 Female 60 - 64 2,210 2,337 55 - 59 2,209 2,162 50 - 54 2,255 2,392 45 - 49 2,801 2,786 40 - 44 3,602 3,470 35 - 39 4,317 4,068 30 - 34 4,605 4,391 Age GroupAge 25 - 29 4,218 3,995 20 - 24 3,436 3,087 15 - 19 3,734 3,317 10 - 14 4,025 3,816 5 - 9 4,167 3,950 Under 5 3,753 3,640 8-8 -66 -44 -22 0 22 4 4 66 8 8 Percentage

Age and Gender Distribution 2000

75&Up 2,971 5,167 70 - 74 1,728 2,077 65 - 69 1,853 1,936 Male 60 - 64 2,073 2,239 Female 55 - 59 2,630 2,679 50 - 54 3,535 3,418 45 - 49 4,397 4,106 40 - 44 4,914 4,673 35 - 39 4,896 4,432 30 - 34 4,126 3,737 Age Group Age 25 - 29 3,626 3,187 20 - 24 3,512 2,913 15 - 19 4,378 3,932 10 - 14 4,286 4,141 5 - 9 3,936 3,945 Under 5 3,647 3,566 -88 -66 -44 -22 00 22 4 6 8 8 Percentage

Source: U.S. Census Bureau

Median Age As shown in Table 3-1, the median age of Sheboygan County was 36.8 in 2000. This was the second youngest median age compared to the surrounding counties and experienced the smallest

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percent change from 1990 compared to the neighboring counties. All of the surrounding counties saw the median age of their residents increase by at least 10 percent from 1990 to 2000, while Sheboygan County’s median age increased by less than 9 percent. This means Sheboygan County’s population is aging by the smallest percent compared with its neighboring counties. The overall aging trend is occurring countywide and is due to the aging of the “baby boomer” generation. The Town of Plymouth had seen the smallest increase in median age at only 0.4 years in a decade. The Town of Sheboygan and the Village of Adell also saw small increases in their median ages. The Town of Holland saw the largest increase in its median age at 7.7 years between 1990 and 2000. The Town of Mosel and the Village of Elkhart Lake and Waldo saw larger increases in their median age in the decade. A detailed look at individual municipalities’ median age is provided in Appendix 2-Sheboygan County Background and Inventory Report. This also shows the trend of an aging population, as no municipality in Sheboygan County saw a decrease in its median age.

Table 3-1: Median Age, 1990 & 2000 Municipality 2000 1990 Percent Change Sheboygan County 36.8 33.8 8.9% Fond du Lac County 36.9 33.4 10.5% Manitowoc County 38.3 34.6 10.7% Ozaukee County 38.9 34.6 12.4% Washington County 36.6 32.5 12.6% Source: Bay-Lake, Southeast, and East Central Wisconsin Planning Commissions

Seasonal Population The estimated seasonal population in Sheboygan County and surrounding counties was found by multiplying the number of seasonal housing units in Sheboygan County, according to the U.S. Census, by the average number of persons per household in Sheboygan County (2.5 persons). In 2000, Sheboygan County had 804 seasonal housing units, creating an estimated seasonal population of 2,010 persons, approximately 1.8 percent of Sheboygan County’s population. Sheboygan County had the highest seasonal population in 2000, compared with all surrounding counties. This may be due to the natural features of the County such as Elkhart Lake, Random Lake, Crystal Lake, Lake Michigan, and others. Seasonal population plays an important role in Sheboygan County’s housing and economy. The seasonal population has different needs than a permanent population that need to be considered.

Table 3-2: Estimated Seasonal Population, 2000 Municipality 2000 Seasonal Population Estimate Percent of Population Sheboygan County 2,010 1.8% Fond du Lac County 1,443 1.5% Manitowoc County 1,290 1.6% Ozaukee County 668 0.8% Washington County 1,730 1.5% Source: U.S. Census Bureau; Sheboygan County Planning Department, 2008

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HOUSING CHARACTERISTICS Sheboygan County has a wide range of housing choices, primarily due to the wide range of urban, suburban, and rural communities that comprise the County. However, within each of the County’s individual municipalities there may not be as broad a variety of housing choices as the County as a whole.

Providing a diverse range of housing choices is necessary for each community to maintain a stable housing stock and population base; therefore, it is necessary for each community to provide as wide a selection of housing choices as their utilities and other services can supply. Different housing choices might include single-family homes, townhouses, duplexes, apartments, and group homes. It is necessary to keep in mind that a person’s housing preferences change over time and some communities are better suited to provide certain types of housing than others.

From 1990 to 2000, Sheboygan County’s total housing units increased nearly 13 percent, but Fond du Lac, Ozaukee, and Washington Counties experienced a greater percent change over the same time frame. In 2000, Sheboygan County had the largest number of housing units (45,947 housing units) than all of its neighboring counties, but this is most likely not the case anymore because Washington County’s housing units are increasing at a much faster rate than Sheboygan County’s. Manitowoc County saw the smallest change in its number of total housing units.

Table 3-3: Total Housing Units, 1990-2000 Year Percent Change Municipality 1990 2000 1990-2000 Sheboygan County 40,695 45,947 12.9% Fond du Lac County 34,548 39,271 13.7% Manitowoc County 31,843 34,651 8.8% Ozaukee County 26,482 32,034 21.0% Washington County 34,382 45,808 35.3% Source: U.S. Census Bureau

Historic and Projected Household Size Units As shown in Table 3-4, the average household size in Sheboygan County, like other counties, has been decreasing and is projected by WisDOA to continue a steady decline. One would expect the square footage of new homes to decrease along with household size, but this is not necessarily the case, as was seen in the 1990s when new homes were built larger despite the drop in household size.

The projected population for Sheboygan County by the year 2030 is 133,031. The average household size for the County is projected to be 2.38 in 2030. The number of housing units needed to support the projected population of 2030, if household size projections are accurate, will be 55,895 units. This means an additional 8,000 will need to be constructed by 2030 – about 400 a year.

These projections can change with fluctuations in the economy, municipal policies, road construction, and migration. Sheboygan County shall use these projections to help make decisions on desired outcomes. With proper planning, policies can be implemented that guide

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development spur or limit growth to reach a desired outcome. Directing growth along desired paths will result in a strong and healthy County with adequate services and facilities.

Table 3-4: Historic and WisDOA Projected Persons Per Household Census Projected Percent Municipality 2000 2010 2015 2020 2025 2030 Change Sheboygan County 2.51 2.46 2.44 2.42 2.40 2.38 23.9% Fond du Lac County 2.52 2.42 2.38 2.36 2.34 2.32 25.4% Manitowoc County 2.49 2.41 2.37 2.35 2.33 2.30 18.5% Ozaukee County 2.61 2.52 2.48 2.45 2.43 2.42 27.0% Washington County 2.65 2.55 2.50 2.47 2.43 2.41 39.9% Source: Wisconsin Department of Administration, 2004

Housing Occupancy and Tenure According to the 2000 Census, there were a total of 45,947 housing units within Sheboygan County. Of all the housing units, 94.8 percent are occupied. Of all housing units, 67.6 percent were owner-occupied and 27.1 percent were renter-occupied. Of the 2,400 housing units that were classified as vacant over 800 of them were for seasonal, recreational or occasional use (See Table 3-5). In 2000, Sheboygan County had more of its occupied housing in renter-occupied structures than did Fond du Lac, Manitowoc, Ozaukee, and Washington Counties, but had less renter-occupied structures than the state and nation, 31.6 percent and 33.3 percent renter- occupied respectively.

Sheboygan County (5.2 percent) has a lower vacancy rate than Fond du Lac and Manitowoc Counties. If you subtract the seasonal, recreational, and occasional use structures from the vacancy rate of Sheboygan County, Sheboygan County’s vacancy rate would only have been 3.5 percent in 2000. This vacancy rate was lower than the recommended level of 5 percent. Vacancy rates are the result of homes in the process of transferring ownership. If few homes are sitting vacant, this may mean there are not enough homes available to satisfy market demand. This can affect the price of homes as well as the ability to purchase a home. If demand is high, prices tend to rise, which can have an adverse affect on housing affordability in a community. The housing market is rather fluid, but currently we are in a period where more homes are on the market than are needed to meet the demand.

Housing Types – Units in Structure At 66.5 percent Sheboygan County had a slightly higher percentage of one-unit detached structures than the State of Wisconsin at 66 percent. Sheboygan County’s percent of one-unit detached single-family housing is less than all its surrounding counties, with Manitowoc having nearly 72 percent of all their housing units falling under this category.

Another large difference between Sheboygan County and its surrounding counties was that 14 percent of all housing structures were 2-unit structures in Sheboygan County; whereas, Fond du Lac, Ozaukee, and Washington Counties all had less than 7.5 percent of all their housing structures in this category. The State of Wisconsin, as a whole, only had 8 percent of the housing structures as two units.

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Table 3-5: Housing Occupancy and Tenure, 2000 Sheboygan County Fond du Lac County Manitowoc County Ozaukee County Washington County 2000 2000 2000 2000 2000 Structure Units Percent Units Percent Units Percent Units Percent Units Percent Occupied 43,545 94.8% 36,931 94.0% 32,721 94.4% 30,857 96.3% 43,842 95.7% Owner 31,078 67.6% 26,940 68.6% 24,856 71.7% 23,543 73.5% 33,317 72.7% Renter 12,467 27.1% 9,991 25.4% 7,865 22.7% 7,314 22.8% 10,525 23.0% Vacant 2,402 5.2% 2,340 6.0% 1,930 5.6% 1,177 3.7% 1,966 4.3% For rent 705 1.5% 830 2.1% 627 1.8% 445 1.4% 523 1.1% For sale 333 0.7% 348 0.9% 277 0.8% 189 0.6% 315 0.7% Seas., Recr., Occas. Use 804 1.7% 573 1.5% 518 1.5% 256 0.8% 653 1.4% Other 560 1.2% 589 1.5% 508 1.5% 287 0.9% 475 1.0% TOTALS 45,947 39,271 34,651 32,034 45,808 Source: U.S. Census Bureau

Table 3-6: Total Units in Structure, 2000 Sheboygan Fond du Lac Manitowoc Ozaukee Washington State of Wisconsin County County County County County % of Total Units 2000 2000 2000 2000 2000 2000 Number % Number % Number % Number % Number % Number % 1-unit, detached 1,531,612 66.0% 30,548 66.5% 27,774 70.7% 24,890 71.8% 22,300 69.6% 30,989 67.6% 1-unit, attached 77,795 3.4% 1,303 2.8% 769 2.0% 683 2.0% 2,302 7.2% 3,156 6.9% 2 units 190,889 8.2% 6,456 14.1% 2,841 7.3% 3,831 11.1% 1,817 5.7% 2,573 5.6% 3 or 4 units 91,047 3.9% 1,756 3.8% 1,209 3.1% 1,083 3.1% 1,054 3.3% 1,593 3.5% 5 to 9 units 106,680 4.6% 1,474 3.2% 1,850 4.7% 830 2.4% 2,185 6.8% 2,979 6.5% 10 to 19 units 75,456 3.3% 1,150 2.5% 1,216 3.1% 684 2.0% 1,153 3.6% 1,595 3.5% 20 or more units 143,497 6.2% 1,906 4.1% 1,608 4.1% 1,259 3.6% 1,115 3.5% 2,062 4.5% Mobile home 101,465 4.4% 1,328 2.9% 1,996 5.1% 1,383 4.0% 99 0.3% 849 1.9% Boat, RV, van, etc 2,703 0.1% 26 0.1% 8 .02% 8 .02% 9 .03% 12 .03% Total Units 2,321,144 45,947 39,271 34,651 32,034 45,808 Source: U.S. Census Bureau

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Nearly 3 percent of all housing structures in Sheboygan County were mobile homes; both Fond du Lac and Manitowoc Counties had a greater percentage of mobile home structures, 5 and 4 percent respectively. Ozaukee and Washington Counties had a smaller percent of mobile homes than Sheboygan County. Mobile homes as defined by the U.S. Census mean both occupied and vacant mobile homes to which no permanent rooms have been added. Mobile homes used only for business purposes or for extra sleeping space and mobile homes for sale on a dealer’s lot, at the factory, or in storage are not counted in the housing inventory.

Although there is some variability in the categories, Sheboygan County, its surrounding counties, and the State of Wisconsin were generally comparable in terms of percentages of units in structure. See Table 3-6 for a further breakdown of the units in structure of Sheboygan County, surrounding counties, and the State of Wisconsin.

Age of Housing Table 3-7 shows that almost 34 percent of the housing units in Sheboygan County were older than 1939, compared with only 23 percent of the State’s entire housing units being older than 1939. Manitowoc and Fond du Lac Counties had similar percentages of housing units built in certain time periods, but Ozaukee and Washington Counties’ housing units appear to have been built after 1969. Less than 40 percent of all housing units were built after 1969 in Sheboygan County, but over 61 percent of all housing units in Washington County have been built since 1969. Older homes generally require more maintenance and repair than newer ones, but maintain older homes provides a good source of affordable housing and enhances the overall character of a community.

Figure 3-7: Year Structure Built State of Sheboygan Fond du Lac Manitowoc Ozaukee Washington Wisconsin County County County County County % of Total Units 2000 2000 2000 2000 2000 2000 Total Housing Units 2,321,144 45,947 39,271 34,651 32,034 45,808 1990 to March 2000 16.8% 14.5% 16.2% 13.3% 20.2% 27.1% 1980 to 1989* 10.8% 9.3% 9.0% 7.5% 12.7% 13.8% 1970 to 1979** 16.9% 14.9% 15.6% 14.6% 21.2% 20.8% 1960 to 1969 11.9% 10.3% 10.3% 10.1% 14.2% 10.8% 1950 to 1959 12.6% 9.6% 11.6% 12.2% 13.4% 7.9% 1940 to 1949 7.7% 7.7% 7.1% 8.9% 4.9% 4.0% 1939 or earlier 23.4% 33.7% 30.2% 33.4% 13.5% 15.5% Median Year Built 1965 1959 1961 1956 1972 1976 Source: U.S. Census Bureau * Includes units built 1980 to Mark 1990 ** Includes units built 1979 to March 1980

Housing Values According to the 2000 Census, the largest percentage of homes in Sheboygan County was valued at between $100,000 and $150,000, with a median home value of $106,800. The State of Wisconsin’s median home value was $112,200. This means housing values in Sheboygan County were lower than the median State of Wisconsin value. Median housing values in municipalities ranged from $84,500 in the Village of Glenbeulah to $150,100 in the Town of Plymouth (See Table 3-8) in 2000. Map 3-1 shows the median home values for each municipality in the County. From 1990 to 2000, Sheboygan County’s median home value

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[Map 3-1: Median Home Values (2000)]

3-9 Sheboygan County Comprehensive Plan Adopted

increased by 80 percent. The Town of Greenbush saw the largest percent change between 1990 and 2000, when the median home value increased by 114 percent. The Towns of Russell and Wilson saw the smallest percent change in median home value in the same time period, but the Town of Wilson still had one of the highest median home values in 2000.

Compared with surrounding counties, Sheboygan County’s median home value in 2000 was greater than Fond du Lac and Manitowoc Counties, but was less than Ozaukee and Washington Counties’ median home value. These five counties all saw their median home values increase between 76 and 85 percent between 1990 and 2000.

Figure 3-8: Median Home Values, 1990 & 2000 Municipality 1990 Median 2000 Median Percent Home Value Home Value Change T. Greenbush $62,300 $113,500 114% T. Herman $63,600 $108,600 71% T. Holland $72,500 $148,500 105% T. Lima $64,300 $118,500 84% T. Lyndon $64,700 $125,300 94% T. Mitchell $67,500 $139,900 107% T. Mosel $67,300 $114,100 70% T. Plymouth $81,100 $150,100 85% T. Rhine $76,500 $149,400 95% T. Russell $60,800 $98,300 62% T. Scott $61,300 $125,000 104% T. Sheboygan $71,600 $135,800 90% T. Sheboygan Falls $64,100 $122,900 92% T. Sherman $64,400 $133,500 107% T. Wilson $83,300 $134,600 62% V. Adell $55,900 $118,400 103% V. Cascade $54,500 $99,100 82% V. Cedar Grove $58,800 $117,400 100% V. Elkhart Lake $71,200 $118,400 66% V. Glenbeulah $42,300 $84,500 100% V. Howards Grove $71,400 $127,000 78% V. Kohler $73,700 $144,400 96% V. Oostburg $57,300 $113,200 98% V. Random Lake $68,200 $133,200 95% V. Waldo $51,600 $100,900 96% C. Plymouth $60,800 $110,200 81% C. Sheboygan $53,500 $89,400 67% C. Sheboygan Falls $58,700 $111,600 90% Sheboygan County $59,400 $106,800 80% Fond du Lac County $56,000 $101,000 80% Manitowoc County $49,500 $90,900 84% Ozaukee County $100,500 $177,300 76% Washington County $83,900 $155,000 85% Source: U.S. Census Bureau

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Table 3-9 breaks down the value of owner-occupied housing units in Sheboygan County and compares them with the surrounding counties. In 2000, the majority of Sheboygan County’s owner-occupied housing values were in the $50,000 to $99,999 range; this was similar to Fond du Lac and Manitowoc Counties which both had even greater percentages in this range of values. Most owner-occupied housing values in Ozaukee and Washington Counties were in the $100,000 to $199,999 range. This may also be due to its proximity to Milwaukee, as these counties are located in the Milwaukee Metropolitan Area. Over 75 percent of Sheboygan County’s housing values were in the $50,000 to $149,999 range. Only 8.1 percent of Sheboygan County’s owner-occupied housing values were above $200,000, which was similar to Fond du Lac and Manitowoc Counties, but much lower than Ozaukee and Washington Counties, which had 39 percent and 23 percent in this range respectively.

Table 3-9: Owner-Occupied Housing Values, 2000 Sheboygan Fond du Manitowoc Ozaukee Washington County Lac County County County County Value Range Percent Percent Percent Percent Percent Less than $50,000 2.2% 3.5% 7.3% 0.32% 0.25% $50,000-$99,999 42.2% 45.7% 52.9% 4.4% 7.9% $100,000-$149,999 34.7% 31.4% 25.5% 28.9% 38.3% $150,000-$199,999 12.9% 12.5% 8.9% 27.1% 30.4% $200,000-$299,999 5.7% 5.2% 4.1% 22.2% 18.1% $300,000 or more 2.4% 1.7% 1.3% 17.0% 5.0% Source: U.S. Census Bureau

Housing Sales In 2006 and 2007, Sheboygan County had a larger number of home sales than all surrounding counties except for Ozaukee County (See Table 3-10), but Sheboygan County also saw one of the largest decreases in the number of home sales between 2006 and 2007, with a 10.3 percent drop in home sales. It appears that the slowdown in home sales in 2007 affected Southeast Wisconsin to a larger extent than Northeast Wisconsin. Manitowoc County saw an increase in their home sales while Fond du Lac County only saw a 1 percent decline in home sales. Sheboygan County does not appear to be defying the current trend of declining home sales. Each municipality is different and some may be experiencing declines where others may see increase, this is just an overall County trend.

Looking back over time (2001 to 2007), all areas saw an increase in the number of home sales per year. Manitowoc County data is not available from 2001 or 2002, but between 2003 and 2007 Manitowoc County saw almost a 35 percent increase in the number of home sales. Sheboygan County saw about a 6.5 percent increase in home sales between 2001 and 2007, while Ozaukee and Washington Counties saw smaller increases in the same time period.

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Table 3-10: Number of Home Sales per Year & Percent of Overall Number of Housing Units, 2001-2007* Number of Home Sales Per Year Percent of Overall Number of Housing Units Percent Percent of Percent Percent Percent Change Total of Total of Total of Total Housing Housing Housing Housing Year 2007 2006 2005 2004 2003 2002 2001 Units Sold Units Units Units (2001) Sold Sold Sold (2003) (2005) (2007) Sheboygan County 1256 1401 1536 1441 1322 1262 1180 6.4% 2.5% 2.8% 3.1% 2.5% Fond du Lac County 828 840 919 926 770 754 764 8.4% 1.9% 1.9% 2.2% 1.9% Manitowoc County 855 827 796 679 634 N/A N/A 34.9%** NA 1.8% 2.2% 2.3% Ozaukee County 1090 1166 1349 1274 1146 1177 1062 2.6% 3.3% 3.4% 3.9% 3.1% Washington County 1483 1750 1844 1709 1467 1511 1412 5.0% 3.0% 3.0% 3.6% 2.8% Southeast WI Region 23,058 26,703 28,805 27,504 25,987 24,679 22,815 10.7% (Including Sheb. Co.) Northeast WI Region 10,980 11,214 11,631 11,697 10,758 10,359 8,789 24.9% *County figures are provided by the Multiple listing service(s) in Sheboygan County and include only MLS sales of existing homes and condos (about 50-60%) and thus are not reflective of all sales (such as FSBO’S) within a county. MLS data may also not include sales submitted to the MLS after their report is submitted to the WRA. Source: Wisconsin REALTORS Association **Only the change between 2003 and 2007 was available., U.S. Census Bureau

The number of home sales per year shows only part of the picture. It is important to take into account the total number of housing units and its relation to number of home sales (Table 3-10) in each county. When looking at this statistic, one can see that Ozaukee and Washington Counties saw the largest drop in the percent of home sales from 2001 to 2007 compared to their total overall number of housing units. Manitowoc County has seen a slow increase in the number of home sales in relation to its total housing unit, increasing from 1.8 percent in 2003 to 2.3 percent in 2007. Sheboygan County’s homes sales made up 2.5 percent of the total housing units in 2001, this increased to 3.1 percent of all housing units by 2005, and then by 2007 the number of homes sales had declined and made up only 2.5 percent of the total housing units in Sheboygan County.

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Sheboygan County’s median sale price of a home was $140,000 in 2007, which was a 29.4 percent increase from 2001 (See Table 3-11). Compared to the neighboring counties, Sheboygan County saw a larger percent increase in the median sale price of homes from 2001 to 2007 in all counties except Manitowoc and Fond du Lac Counties which saw an increase of 9.1 and 23.3 percent respectively. Ozaukee and Washington Counties saw over a 30 percent increase in their median sale prices from 2001 to 2007. The median sale price of a home in Sheboygan County was $140,000 in 2007 which is in the middle of the surrounding counties. The median sale price in the Southeast region of Wisconsin, which includes Sheboygan County, was $184,400 in 2007. This means Sheboygan County’s median sale price was lower than most of the other counties in that region. Sheboygan County did have a higher median sale price than the Northeast region of Wisconsin. This includes Fond du Lac and Manitowoc Counties, both of which had median sale prices lower than Sheboygan County’s.

Table 3-11: Median Sale Price per Year, 2001-2007 Median Sale Price Per Year Percent Year 2007 2006 2005 2004 2003 2002 2001 Change Sheboygan $140,000 $131,400 $132,500 $125,000 $116,200 $113,300 $108,200 29.4% County Fond du $125,000 $122,500 $116,700 $112,900 $107,100 $105,900 $101,400 23.3% Lac County Manitowoc $103,000 $95,000 $92,500 $94,300 $94,400 N/A N/A 9.1% County Ozaukee $244,700 $244,000 $237,500 $235,300 $220,600 $210,700 $184,400 32.7% County Washington $204,300 $204,500 $204,500 $194,500 $175,400 $161,700 $151,400 34.9% County Southeast WI Region $184,400 $180,000 $176,400** $162,000 $150,000 $142,000** $132,900 38.8% (Including Sheb. Co.) Northeast $135,000 $133,800 $130,800** $127,700 $121,500 $118,500** $111,400 21.2% WI Region *WRA calculates the Median price using summary data of sales prices of existing homes including condo’s provided to the WRA by the Multiple listing service(s) in that area. The median price thus is an estimate of prices sold within the MLS (50 to 60%). Source: Wisconsin REALTORS Association ** Only 4th quarter data was available for 2005 and 2002 on the southeast and northeast regions, not the median sale price per year.

Housing Costs – Rent and Mortgage Affordable housing, however, is not the same as low-income housing. According to the U.S. Department of Housing and Urban Development (HUD), housing affordability is defined as paying no more than 30 percent of household income for housing (including utilities). The 2000 Census shows the median household income in Sheboygan County to have been $46,237. Assuming a household earned the median income in 2000, the maximum mortgage or rent, plus utilities, an average household could afford to spend $1,156 on housing in 2000. Nearly every

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community suffers from a shortage of affordable housing, including Sheboygan County. In 2000, about 23 percent of renters paid over 30 percent of their household income on rent, while 16 percent of homeowners spent more than 30 percent of their household income on monthly owner costs. In Sheboygan County residents were able to afford to purchase a home because the median sale price for a home was about $106,800 in 2000.

Rent and Income Comparison According to the 2000 Census, there were 12,467 renter-occupied units in the County, and the median gross rent for renter-occupied housing units was $482. According to the U.S. Census in 2000, about 23 percent of renters paid more than 30 percent of their household income on their rent.

Owner Costs and Income Comparison According to the 2000 Census, the median gross mortgage for owner-occupied housing units was $976 within Sheboygan County. The 2000 median gross mortgage for owner-occupied housing units ($976) was less than what a household that earned the median income in 2000 could afford ($1,156); this means that in 2000, on average people in Sheboygan County would not have been living in houses they could not afford. The 2000 Census indicates that 16 percent of Sheboygan County’s owner-occupied housing units paid more than 30 percent of their household income for monthly owner costs.

Projected Occupied Housing Units Demographics, migration trends, and population forecasts indicate that change appears to be inevitable. Estimating the amount of growth, however, is difficult if not impossible. Demographic trends are influenced by “free will” factors, such as whether to marry or remain single, whether to have children and how many, and so forth. Migration trends can change dramatically if federal policies are altered. Population forecasts for a particular community are subject to a large variety of factors, including highway expansions, plant relocations, and the attractiveness of surrounding communities, which the County has little control over. Table 3-12 shows that in 2030 there will be about 54,718 households in the County, which is nearly a 26 percent increase from 2000. Fond du Lac, Ozaukee, and Washington Counties are projected to have a larger percent increase in the number of households, than Sheboygan County. Sheboygan County numerically will still have more households (54,718) than all surrounding counties, besides Washington County (67,444).

Table 3-12: Number of Projected Households Census Projected Percent Municipality 2000 2005 2010 2015 2020 2025 2030 Change Sheboygan County 43,548 45,440 47,310 49,304 51,241 53,092 54,718 25.6% Fond du Lac County 36,931 38,960 41,036 42,933 44,692 46,164 47,362 28.2% Manitowoc County 32,723 34,000 35,199 36,439 37,546 38,440 39,125 19.6% Ozaukee County 30,857 32,735 34,381 36,284 38,015 39,503 40,621 31.6% Washington County 43,843 48,146 52,111 56,436 60,564 64,317 67,444 53.8% Source: Wisconsin Department of Administration

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Senior Housing As was stated at the beginning of this chapter, the aging population of Sheboygan County is expanding, and it is expected to keep increasing over the course of this planning period. In Sheboygan County’s 2008 Comprehensive Planning Survey, almost 50 percent of respondents agreed that their city/village/town has a need for more housing for seniors.

Services such as health care need to be provided to seniors, but most of these services are in the villages and cities of the County. This means that as people continue to age, they tend to leave their rural areas for the villages and cities because they provide the services and amenities many of the senior need. Housing is another reason why people tend to move to cities and villages. Seniors want to continue to live independently as long as possible; therefore, the seniors tend to move to where there are retirement communities, continuing care retirement communities, residential care apartment complexes, and skilled nursing facilities. There is a greater discussion of these facilities in Chapter 6:Utilities and Community Facilities. It will be important for the future of the County to have adequate housing available for seniors, so that as they age they are able to find housing, while remaining in the County.

Subsidized and Special Needs Housing Due to larger than ever numbers of aging citizens in the U.S. population, which is slated to continue until dropping off around 2040, many communities have begun to explore how they will meet the housing needs of this group. Options for relatively healthy older citizen currently include, 1) continued independent living in single-family homes, if transportation and other needs are met, 2) independent living in condos or apartments designed and designated for seniors, 3) Subsidized Rental Housing Projects, and 4) Independent Senior Living Units.

1. Many older citizens live satisfactorily in the single-family homes they have lived in for the past several decades. Mortgages on these homes are often paid off. Seniors are typically comfortable in these homes and not eager to leave, even when health problems begin. These homes are generally well cared for, but in some cases, due to lack of mobility or the loss of a spouse, maintenance can become neglected. As long as property taxes do not become overly burdensome and sufficient transportation options and public services remain available, some senior citizens can live in their homes into their eighties and beyond. There are in-home services provided for these citizens, but theses services come with an associated cost. Some of these services are subsidized, while others are not. As the population continues to age, a greater strain may be placed on these subsidized services. The cost to operate these programs may also increase, leading to questions about how to pay for these services. Older citizens may also choose to live with family and create multi-generational households. This may be done with the addition of an “in-law suite.” This means that the older citizens may have their own separate entrance, but is still in close proximity to the family. There may also be a caregiver suite added to a housing unit.

2. Condominiums, townhouses, and apartments have become increasingly attractive options for older citizens. Typically, such housing is smaller and easier to maintain than a single-family house, and when properly sited near bus lines and other amenities, they are more convenient for older lifestyles.

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3. Subsidized housing programs include HUD’s Housing Choice Voucher Program, WHEDA funded housing, or other programs run by local housing authorities, HUD, or other organizations. Those eligible for subsidized or affordable housing varies between programs, for further information on eligibility explore http://www.hud.gov/ or http://www.wheda.com/root/. Subsidized Rental Housing Projects include Zion Community Apartment in Adell, Hawthorne Woods Apartment, Fairview Crossing, and Quit Qui Oc Manor in Plymouth, Cascade Manor in Cascade, Country Harbor in Random Lake, DeGelder Huis in Cedar Grove, Rochester Spring in City of Sheboygan Falls and several sites in Sheboygan.

4. Independent Senior Living Units are typically multi-unit apartment style settings that are designed for independent older adults. Room sizes range from studio/efficiency units to one and two bedroom apartments. Most facilities have a recreation room or common area for social gatherings. There is often a manager available to make referrals, organize events, or assist with independent living. Minimum age limits usually apply in these facilities. Some facilities may also require a resident’s annual income to fall below certain guidelines.

For other housing options that may be different than those listed above or allowed through municipalities’ ordinances it may be necessary to appeal to a municipality’s board of appeals

Housing Development Environment Each municipality within Sheboygan County has their own desires and needs for housing. Using records from Sheboygan County Planning Department, in all unincorporated areas of the County, the Certified Survey Maps and Subdivision Plats that were reviewed and approved are shown in Table 3-13. This gives an idea on the total growth rate for the towns in Sheboygan County.

Table 3-13: Tally of Land Divisions (Unincorporated Areas Only) CERTIFIED SURVEY MAPS SUBDIVISION PLATS TOTALS YEAR LOTS MAPS ACREAGE LOTS* PLATS ACREAGE* LOTS* MAPS ACREAGE* 2000 156 85 1,335.18 117 8 134.60 273 93 1,469.78 2001 165 90 1,530.53 108 8 91.85 273 98 1,622.38 2002 126 73 1,258.47 0 3 76.00 126 76 1,334.47 2003 151 82 1,458.04 347 10 233.16 498 92 1,481.20 2004 165 94 1,683.27 91 5 83.73 256 99 1,767.00 2005 124 64 1,469.99 162 3 241.59 286 67 1,711.58 2006** 117 64 932.89 58 2 44.00 175 66 976.89 2007 139 82 1,495.54 187 5 418.43 326 87 1,913.97 TOTALS 1,143 634 11,163.91 1,070 44 1,323.36 2,213 678 12,277.27 Source: Sheboygan County Planning Department, 2008 *Acreage for condo plats was included but not number of lots. ** Effective 2006 acreage and lots not counted. Since the Subdivision Ordinance amendment in 1998, acreage count includes a number of remnant parcels of between 15 and 40 acres created solely because of Ordinance requirements, not intended for development.

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Records from Real Property Listing and Register of Deeds of Sheboygan County were also examined in order to see how many subdivision and condominium plats were recorded in the entire County from 2003 to 2007. Table 3-14, shows the number of condominiums, subdivisions, addendum and amendments to condominiums, and additions to subdivisions in the County each year. It appears that the number of condominium plats has held constant for the last five years, reaching a high of 39 in 2005 and a low of 34 in 2004. The number of subdivision plats recorded in the County was unusually high in 2003, but now appears to be stable. The Town of Sheboygan had the largest number of plats recorded (48) in this time frame, while the Cities of Plymouth (40) and Sheboygan (39) each had a significant number of recorded plats. It is not surprising that the Town of Sheboygan and Town of Wilson would be the towns with the greatest number of plats recorded because of their proximity to the City of Sheboygan. The Villages of Oostburg, Howards Grove, and Elkhart Lake saw 17, 28, and 16 plats recorded respectively. Detailed information about the name of the subdivision or condominium and its location can be found in Appendix 7. The County appears to have seen a slight decline in the number of condos and subdivisions that are being platted. For more specific information on individual municipalities, their specific comprehensive plans should be reviewed or the city/town/village clerk should be contacted.

Table 3-14:Subdivision and Condominium Plats Recorded, 2003-2007 Commercial Replat Year Addendums Additions Removal Condos Subds. Condos / of Recorded to Condos to Subds. of Condos Subds. Subds. 2003 35 14 7 3 1 1 1 2004 34 4 8 4 0 0 0 2005 39 5 3 11 0 0 0 2006 38 3 4 2 0 0 0 2007 35 7 4 2 3 0 0 Total 181 33 26 22 4 1 1 Source: Real Property Listing, Register of Deeds, and Sheboygan County Planning Department, October 2008.

Some data that might provide a better picture of the amount of one and two family dwellings that are being built in each year is Wisconsin Department of Commerce data shown in Table 3-15. Municipalities report to the Wisconsin Department of Commerce the number of one and two- family uniform building permits they issue each month. Table 3-15 shows how many permits have been issued in the County in the years 2005 to 2008. From this data, one can see the number of new one family homes being built has drastically dropped (nearly 68%) since 2005. In 2005 there were 409 total permits issued in the County, this number was only 235 in 2007 and will be less than 150 in 2008. A possible reason for the decrease is the new housing market may have slowed down as the economy has slowed.

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Table 3-15:Uniform Building Permit Statistics, Sheboygan County 2005-2008 Year Uniform Building One Family Two Family Total Issued Permit Issued 2005 362 47 409 2006 254 22 276 2007 189 46 235 2008 118 12 130

Source: Wisconsin Department of Commerce.

ANALYSIS AND DEVELOPMENT OF COMMUNITY POLICIES AND PROGRAMS Housing Programs There is a variety of programs available to the County’s communities to help provide assistance with housing for residents of limited income, special needs, or home health concerns. Resources for such programs include USDA Rural Development and the State of Wisconsin Website at www.doa.state.wi.us/dhir. Such programs include, loans and grants, funding for waste/water systems.

Sheboygan County Sheboygan County’s Planning Department does not specifically administer any housing programs. However, the Sheboygan County Health and Human Services Department does perform several services related to housing. For example, their department determines the financial eligibility for Wisconsin Works and other assistance programs such as Food Share, Child Care, and Medicaid.

The Health and Human Services Department also has a small Sheboygan County Works Program that provides minimal rental assistance for a very short period of time for single eligible adults. Specifically, the payment is $175 per month, and is for no more than three months in a calendar year in a repayment program. A similar program is offered to veterans through the Sheboygan County Veteran's Service office for one month of assistance.

The department does purchase housing services from non-county providers in terms of residential programs (community-based residential facility services, group home and/or adult family home). These are based on an individual’s assessed need, care plan and eligibility for funding. Usually the individuals are elderly or have a disability (e.g. developmental, mental health, substance abuse, or physical).

In collaboration with the City of Sheboygan, the department has a $1.5 million dollar federal lead abatement grant that provides funding to conduct lead abatement from 120 homes. To qualify there must be a child less than 6 years of age or a pregnant woman enrolled in the prenatal care coordination program . If there is a lead poisoned child present, the household is placed at the top of the waiting list.

There are also two HUD-housing authorities within the County. The Cities of Plymouth and Sheboygan both operate public housing. There are about 664 units of housing for seniors with rent based on income in the County, and another 28 housing units that are labeled as affordable

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housing. There are 298 units of housing for families with rent based on their income in Sheboygan County. These are mostly in the City of Sheboygan, Sheboygan Falls, and Plymouth. The City of Sheboygan has a baseline level of 186 housing choice vouchers, but in 2009 had funding for about 160 families. The City has 288 public housing units and manages a WHEDA project in the City of Sheboygan Falls that has an additional 49 apartments. These programs offer assistance to lower-income households who need help to pay rent and utilities.

The City of Sheboygan receives HUD Community Development Block Grant (CDBG) funding. An emphasis is made to fund programs that meet one or more of the three national objectives described below:

• Benefiting low- and moderate-income (LMI) persons, i.e. affordable housing, LMI jobs, LMI area benefit, etc.) • Prevention/Elimination of Slums or Blight • Meeting other community development needs having a particular urgency because existing conditions pose a serious and immediate threat to the health or welfare of our community.

The CDBG programs help to develop housing that is affordable as well as to help development occur in areas where it otherwise would not. One of the projects that was partially funded through CDBG funds ($2 million) is the Water Street Housing Redevelopment project. This project created 198 units of multi-family and elderly housing, as well as creating two neighborhood parks. This project also was in a Tax Incremental Financing (TIF) District, which contributed $6 million, and $15 million from the private sector, and $1 million in Section 42 tax credits from the Wisconsin Housing and Economic Development Authority (WHEDA).

The City of Sheboygan also runs two housing loan programs. One is the owner-occupied loan program. This helps homeowners with low or moderate incomes finance maintenance and/or rehabilitation of their homes. It is the hope that these loans will expand the supply of adequate, safe housing. The loans can be for 100 percent of the project and may be used to maintain the homes, correct code violations, or make the home more energy efficient, but cannot exceed $25,000. The loan term and interest rate is based on the owner’s income.

The other program is the rental rehabilitation loan program. These loans are to help the owners of residential rental properties leased by tenants with low or moderate incomes with maintenance and or rehabilitation of the rental properties. The City will provide these loans for 75 percent of the rehabilitation costs and cannot exceed $25,000. These loans are made at 4 percent and for a 15-year term.

Finally, other social service and welfare organizations located in Sheboygan County include the Salvation Army and Safe Harbor Inc., who operate a homeless shelter and domestic abuse housing respectively. Bridgeway is a nonprofit sheltered agency that provides a live-in program for young women and families to develop life skills.

State of Wisconsin The State of Wisconsin’s 2000 Consolidated Plan for Housing and Community Development Needs addresses the need for housing and community development activities. In the Executive

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Summary, the following housing needs were specifically listed:

• Affordability of housing to all consumers, especially those with severe cost burdens, to increase and maintain affordable housing. • Adequate production of new units, including the adequate production of large family and elderly housing activities. • The preservation and increased availability of safe, sanitary housing for low and moderate-income owners and renters, including lead-based paint hazard reduction training and resources. • Housing assistance for special needs groups, including homeless prevention activities, expanding transitional housing programs, and increasing emergency shelter operating funds. • The continuance of fairness and accessibility for all housing consumers, including enforcement and compliance with fair housing laws. • Continued efforts to assist with housing disaster relief.

The Wisconsin State Historical Society provides historic preservation tax credits to repair and rehabilitate historic buildings single-family and historic renovation and adaptive reuse of other historic structures. More information can be obtained at www.wisconsinhistory.org/hp/funding.asp.

The Wisconsin Housing and Economic Development Authority (WHEDA) serve communities by providing creative financing resources to residents and businesses. Specifically, their mission is to offer innovative products and services in partnership with others to link Wisconsin residents and communities with affordable housing and economic development opportunities. One possible way WHEDA can be of assistance to County residents is helping first-time homebuyers with loans. Specific information regarding the wide variety of products and services the Authority offers can be viewed at www.wheda.com/index.asp.

Housing Plans There are currently no stand-alone housing plans for Sheboygan County or the Bay-Lake Regional Planning Commission. The housing chapter of the Bay-Lake RPC’s comprehensive plan, however, does identify issues and make broad recommendations for housing in the region. Issues identified include 1) The need for more housing for all segments of the population, 2) Affordable housing for young families, 3) Ensuring that municipal ordinances do not deter or prevent the development of affordable housing, and 4)Affordable living for the elderly.

SUMMARY • Population o The percent of the population that is female in Sheboygan County has dropped from 1990 to 2000. In 1990, 50.4 percent of the population was female compared to 49.8 percent in 2000. This trend is occurring in the entire Bay-Lake Region, but to a smaller extent. o Sheboygan County loses some of its population once teenagers reach adulthood (20s), this may be due to college or relating from work.

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o Once people reach their 30s, the County becomes more attractive, especially as people raise their families. o Sheboygan County’s population is aging and growing. Sheboygan County’s population in their 60s in 1990 was 8,875 people; however, 10 year later in 2000, this population is in their 70s and there are 11,943 residents. This is a 35 percent increase to this age cohort in a decade. o The median age for a Sheboygan County resident was 36.8 in 2000. This was the second youngest median age compared to surrounding counties. Compared to surrounding counties, Sheboygan County saw the smallest increase in its median age from 1990 to 2000. o Sheboygan County has an estimated seasonal population of 2,010 persons or about 1.8 percent of the total population. Sheboygan County has the highest seasonal population compared with all surrounding counties. This is not surprising with the prominent lakes in the County.

• Housing o From 1990 to 2000, Sheboygan County’s total housing units increased nearly 13 percent, but Fond du Lac, Ozaukee, and Washington Counties experienced a greater percent increase in the same time frame. o The project population for Sheboygan County by the year 2030 is 133,031. o The average household size is projected to be 2.38 people in 2030, a decrease of .13 persons from 2000. o If the population and household size projections hold true, Sheboygan County will need to construct about 8,000 new units by 2030. o In 2000, of all housing units, almost 95 percent are occupied. Of the 95 percent of housing units that are occupied, 67.6 percent are owner-occupied and 27.1 percent are renter-occupied. People tend to maintain the home they own, so the condition of the housing stock remains at a high quality. o Sheboygan County has a comparable percent of one-unit detached structures, but has a larger percent of 2-unit structures than the surrounding counties. o Almost 34 percent of housing units in Sheboygan County are older than 1939, compared with only 23 percent of the State’s entire housing units being older than 1939. Less than 40 percent of all housing units were built after 1969 in Sheboygan County. o Age of the housing units may be important in Sheboygan County in the next 20 years. Older homes tend to need more repair and maintenance than a newer home, but older homes provide a good source of affordable housing. o The median home value is $106,800, which is less than the State’s median home value of $112,200. From 1990 to 2000, Sheboygan County’s median home value increased by 80 percent. Having a lower median home value, may make it easier for first-time homebuyers and those with limited incomes to afford a home. o In 2006 and 2007, Sheboygan County had more housing sales than all surrounding counties, except Ozaukee County, but Sheboygan County saw one of the largest decreases in the number of home sales between 2006 and 2007 (10.3 percent drop).

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o In 2007, Sheboygan County’s median sale price of a home was $140,000, which was a 6.5 percent increase from 2006. This percent increase was larger than all counties except Manitowoc. o According to the 2000 Census, about 23 percent of renters in Sheboygan County paid more than 30 percent of their household income on their rent, while about 16 percent of owner-occupied households paid more than 30 percent of their household income for monthly owner costs. Sheboygan County needs to ensure residents are living in a house that is within their means. o The Cities of Plymouth, Sheboygan, and Sheboygan Falls, along with the Towns of Sheboygan and Wilson all experienced a significant number of plats recorded between 2003 and 2007. o The Villages of Elkhart Lake, Howards Grove, and Oostburg had the greatest number of condominium and subdivision plats recorded. This may be directly correlated to the increases in population the Villages of Howards and Oostburg have been experiencing. o Overall, the number of housing permits issued in the County has decreased by about 68 percent since 2005. There were less than 150 total permits for one and two-dwelling units in 2008. o There is a variety of programs available to Sheboygan County residents to help maintain, purchase, or repair their homes.

HOUSING STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee.

Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

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Housing Goals, Objectives, Policies, and Programs Goal 1: Promote a range of safe and affordable housing choices for persons of all income levels and age groups in the County. Objective: Encourage affordable housing choices for all people working in Sheboygan County. Policy/Program: Develop model Planned Unit Development (PUD) and accessory apartment ordinances, for use by local governments, which are designed to increase the number of affordable housing units. Policy/Program: Promote higher density development to create more affordable housing options. Policy/Program: Promote reasonable minimum housing square footage requirements. Objective: Work to ensure that housing is well-constructed, safe, and energy efficient. Policy/Program: Continue to enforce requirements in the Sheboygan County Subdivision Ordinance and in the Sanitary Ordinance regarding the disposal of solid waste. Policy/Program: Continue to follow laws and regulations regarding housing safety and construction. Policy/Program: Continue cooperative efforts between the Sheboygan County Health Department and local governments to enforce State public health Statutes and County ordinances concerning dilapidated, unsafe, or unsanitary housing that poses a human health hazard. Policy/Program: Encourage energy efficiency in housing units, by supporting the State’s Focus on Energy Program. Policy/Program: Work with independent funding sources to increase energy efficiency in the County’s housing units (e.g. condo associations and apartment complexes). Objective: Increase awareness of the housing needs and preferences of elderly and disabled residents. Objective: Promote housing options that allow elderly and disabled persons to remain in their homes. Policy/Program: Provide information on universal design (designed for all physical abilities) in housing and subdivision construction. Policy/Program: Support efforts by appropriate government, profit, and non- profit organizations to provide needed assistance for elderly and disabled residents who wish to stay in their own homes. Policy/Program: Continue to provide or create assistance programs for home maintenance and in-home health care services. Policy/Program: Continue the Meals on Wheels Program, so people can stay in their homes and receive meals.

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Objective: Promote Federal, State, and County Government housing programs that have the potential to increase the availability of lower-cost housing and rehabilitation within the County. Policy/Program: As needed, work with the local housing authorities and other agencies on the availability of housing assistance programs. Policy/Program: Partner with the appropriate organizations to study and educate local government officials and staff about the use and availability of Community Development Block Grant (CDBG) funds. Policy/Program: Assist, where possible, in the application process for CDBG funds from the Wisconsin Department of Commerce and the U.S. Department of Housing and Urban Development. Objective: Promote awareness of Federal and State fair housing laws among those seeking and providing housing within the County. Policy/Program: Assist in the distribution of educational materials regarding Federal and State fair housing laws.

Goal 2: Promote the addition of an adequate number of housing units to meet housing demand through 2030. Policy/Program: Inform and educate local officials about new housing unit projections and programs available to them. Policy/Program: Consider creating an umbrella agency to deal with countywide housing issues at a centralized location. Policy/Program: Support the use of tax incremental financing (TIF) districts to encourage redevelopment of under-used and blighted areas for housing.

Goal 3: Promote the maintenance and improvement of existing housing stock as a continuing source of affordable housing. Objective: Encourage the rehabilitation of existing homes. Policy/Program: Develop and provide technical assistance for model property maintenance regulations and lead-safe standards so local governments can adopt and enforce such regulations. Policy/Program: Work with existing housing agencies to identify programs and potential funding sources for new programs to assist homeowners with making needed repairs, including improvements to meet State and Federal lead-safe standards.

Goal 4: Encourage development in areas that provide adequate infrastructure. Policy/Program: In communities with sewer service areas and other urban services, encourage comprehensive plans and ordinances that support the provision of a full range of structure types and sizes, including single-family, two- family, and multi-family dwellings, at appropriate densities. Policy/Program: In communities without sewer service areas and other urban services, encourage comprehensive plans and ordinances that support the provision of housing types and densities appropriate for the community.

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Goal 5: Promote a range of housing and development choices that meet the needs and preferences of Sheboygan County residents. Objective: Encourage local municipalities to have a variety of housing structure types including single-family, two-family, and multi-family, and a variety of ownership options (conventional home ownership, condominiums, and rental units). Policy/Program: Continue to use the County’s Subdivision Ordinance to review new development in unincorporated areas. Policy/Program: Continue to enforce requirements relating to development in floodplains through administration of the County Shoreland-Wetland and Floodplain Ordinance. Policy/Program: Support local government comprehensive plans and ordinances including zoning ordinances, land division ordinances, and building codes that support the provision of a full range of lot sizes and structure types and sizes, depending on location (e.g. “in-law zoning” and /or “caregiver suites”). Policy/Program: Provide technical assistance to the rural areas of the County relating to residential development at appropriate densities and roadway safety. Policy/Program: Promote higher density development to maximize available land use (for example: for the preservation of forestry and agricultural lands). Policy/Program: Continue to research housing trends and provide information to local governments on innovative ways to accommodate a variety of housing types and sizes that are appropriate to the services available in various communities. Objective: Encourage and educate local communities on cluster development, conservation subdivisions, or other “green” development options. Policy/Program: Provide technical assistance to communities seeking to provide conservation-based and other innovative forms of housing. Policy/Program: Encourage the preservation of resources, including land and natural resources, in housing developments. Policy/Program: Encourage the use of flexible zoning techniques by local governments to accommodate a variety of housing options, including “green” developments. Policy/Program: Provide education and information on new building materials and new development types to local officials.

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CHAPTER 2 – NATURAL, AGRICULTURAL, AND CULTURAL RESOURCES INTRODUCTION The purpose of this element is to provide background information on a wide variety of agricultural, natural, and cultural resources in the County. This information will help the County recognize and identify important resources that need to be protected and/or efficiently managed. It will also identify if there is anything that may limit the development potential in the County. Each municipality’s plan has addressed their individual natural, agricultural, and cultural resources. There are some common resources throughout the County, such as Lake Michigan, the Kettle Moraine State Forest, and agricultural lands. Natural resources are vital to Sheboygan County’s economy, whether it be for the tourism revenues, enhanced property values, agricultural practices, recreational opportunities, or the raw materials available.

According to the 2002 land use windshield survey1 completed by Bay-Lake Regional Planning Commission, the County had about 58 percent of its land in agricultural related uses in 2002. More than likely this number has decreased since 2002, as some new development occurs on agricultural lands. In the 2008 Community Survey, nearly two-thirds of respondents stated they would be willing to increase their property taxes to protect our natural resources. This shows how strongly residents feel about protecting these resources. Sheboygan County has 26.3 miles of Lake Michigan shoreline, which provides an opportunity for tourism, recreation, commercial fishing, and other businesses. This also provides challenges in balancing tourists’ desires, and residents’ desires as well as ensuring the quality of the Lake remains unchanged.

Although Sheboygan County has recognized the importance of planning for agricultural resources, as evidenced by its farmland preservation plan, particular emphasis has not been placed on ensuring its integration with other planning efforts. This can result in lost opportunities in agriculture preservation and inefficiencies for growth and development. Another important reason for a comprehensive approach to agricultural planning is agriculture’s strong influence on quality of life issues and the character of the community. Sheboygan County is proud of its agricultural heritage and needs to plan to preserve these lands. Preserving these lands will also help sustain an important industry in the County as well as Wisconsin.

As the population of Sheboygan County continues to grow, some of the agricultural, natural, and cultural resource lands may be used for residential, commercial, or industrial purposes. Land development patterns are directly linked to the natural, agricultural, and cultural resource bases of each community. Therefore, these features need to be considered before making any decisions concerning future development within the community. If development on agricultural lands is unplanned or uncontrolled, development may leapfrog and lead to inefficient extensions of utilities and roads, in addition this type of development can also cause existing land uses to become inefficient. If farmers have segmented fields, it can increase transportation costs for proper manure spreading, plowing, planting, and harvesting, as well as cause a greater incidence of land use conflicts. Planning helps to reduce these conflicts, while at the same time, preserving the character for future generations.

1 A Land Use windshield survey is when staff of Bay-Lake Regional Planning Commission drove around the County and assessed the land use on a parcel by parcel basis. The land use was then mapped.

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Land development patterns are directly linked to the natural, agricultural, and cultural resource bases of each community. Therefore, these features need to be considered before making any decisions concerning future development within the community. Future development must be carefully adjusted to coincide with the ability of the agricultural, natural and cultural resource base to support the various forms of urban and rural development. This balance must be maintained to prevent the deterioration of that underlying and sustaining base because these resources make each community and Sheboygan County unique. It is important when planning for future land use, each of these resources is taken into consideration. The County’s agricultural, natural, and cultural resources contribute greatly to the quality of life.

Sheboygan County understands the importance of planning wisely, with the sheer number of cultural and natural resources located within the County. Sheboygan County has recognized their importance by inventorying, identifying, protecting and preserving natural and cultural resources, as is shown in the County’s Natural Areas and Critical Resources Plan. This plan helps to identify the natural resources of Sheboygan County including the lakes, woodlands, wetlands, geology, along with many other resources. Recommendations were then developed to preserve, protect, and educate the public about natural and cultural resources in Sheboygan County. Some of the tourism to the County is based on making sure these resources are protected, preserved, and maintained. The freshwater lakes, woodlands, wetlands, and other natural features are all important. This chapter will identify and explore these agricultural, cultural, and natural resources Sheboygan County has to offer. Sheboygan County municipality’s plans will also be used in the development of this chapter. Finally, this chapter will combine the data and recommendations set forth in the Farmland Preservation Plan and the Natural Areas and Critical Resources Plan, as well as new recommendations that have been developed through the Citizen Survey and the Smart Growth Implementation Committee.

NATURAL RESOURCES Climate Western Sheboygan County typically experiences continental weather with some slight microclimate variations on the hilltops and in the valleys of the Kettle Moraine area. Figures 2-1, 2-2, and 2-3 are climate data from the Plymouth weather station. There is also a weather station in Sheboygan, but Plymouth’s data is shown because it is a more central location. The climate data from the Sheboygan weather station varies slightly, but overall the average temperature is warmer in Sheboygan, the average annual precipitation is less, as well as the annual average snowfall. This may be due to the proximity to Lake Michigan. Another possible explanation for the difference may be that the Plymouth weather station is 834 feet above sea level and the Sheboygan weather station is 648 feet above sea level.

Sheboygan County experiences a lake-effect climate. Due to the proximity to Lake Michigan, temperatures in the summer tend to be cooler near the lake. This is because bodies of water take a longer time warming up or cooling off compared to the land. This means in summer and spring that there could be a 10 to 15 degrees Fahrenheit drop in temperature from eastern Sheboygan County to western Sheboygan County. The lake-effect climate also means that in winter the temperatures may be 10 to 15 degrees warmer closer to the Lake, than temperatures 20 miles from the Lake. Communities closer to the Lake will see warmer temperatures in winter.

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About two-thirds of the annual precipitation falls during the growing season. It is normally adequate for vegetation, although drought is occasionally reported. The climate is most favorable for dairy farming; the primary crops are corn, small grains, hay, and vegetables.

The growing season averages 126 to 165 days. The average date of the last spring freeze varies from the first week to the last week of May, with a median date of last frost of May 10. The first autumn freezes occur in early to mid-October, with a median date of first frost of October 7. The mean date of first snowfall of consequence, an inch or more, occurs in early November. The snow cover acts as protective insulation for grasses, autumn seeded grains, and other vegetation.

While a detailed site assessment for Sheboygan County has never been done, Wisconsin Division of Energy computerized models indicate wind speeds average 10-12 miles per hour at a height of 30 meters, which is a typical height for small private wind generators (in general, winds exceeding 11 mph are required for cost-effective installations). Computerized models indicate wind speeds average 13-15 miles per hour at a height of 60 meters, which is a typical height for large commercial wind turbines (in general, winds exceeding 13 mph are required for financially feasible projects).

City of Plymouth Climate Station Data Figure 2-1: Average Monthly Temperature

JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC Annual

Max °F 25.4 30.0 40.4 53.6 66.9 76.5 81.0 78.5 70.4 58.3 43.1 30.4 54.5

Min °F 9.0 13.0 23.0 34.2 45.0 54.6 60.1 58.5 49.8 39.5 28.0 16.1 35.9

Mean 17.2 21.5 31.7 43.9 56.0 65.6 70.6 68.5 60.1 48.9 35.6 23.3 45.2 °F

Figure 2-2: Average Monthly Precipitation

JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC Annual

Inches 1.40 1.25 2.42 3.47 3.67 3.93 3.94 4.55 4.02 2.93 2.85 1.87 36.30

Figure 2-3: Average Monthly Snowfall

JAN FEB MAR APR MAY JUN JUL AUG SEP OCT NOV DEC Annual

Inches 16.1 11.6 10.4 3.6 0.2 0.0 0.0 0.0 0.0 0.2 5.5 13.8 61.4

Source: Wisconsin State Climatology Office. Based on historical data from1971-2000 from the weather station at Plymouth, Wis., latitude 43°44' N, longitude 87°58' W, elevation 834 ft.

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Air Quality Issues Over the past several decades, citizens in eastern Wisconsin have been suffering from exposure to unacceptable levels of ozone. Environmental Protection Agency (EPA) designated nonattainment areas in southeastern Wisconsin shortly after developing the first ozone standard in 1979. As the ozone monitoring network grew and measured unacceptable ozone concentrations in other locations, additional counties along the Lake Michigan shoreline were added to the list of nonattainment counties.

In 1997, EPA revised the ozone standard, replacing the previous 1-hour standard with the current 8-hour standard (meaning that ozone levels are averaged over an 8-hour period). In April 2004, EPA designated 10 counties in Wisconsin as nonattainment areas for the 8-hour standard, one of these counties is Sheboygan. In 2008, the EPA redesignated Kewaunee County as attainment for 8-hour standard. Sheboygan continues to be among nine counties designated as non-attainment of the ozone standard. Also in 2008, the EPA revised the 8-hour standard to a lower standard of 75 parts per billion.

Geology Two different types of geologic settings, Quaternary geology and bedrock geology, characterize Sheboygan County. Quaternary geology refers primarily to the effects that continental glaciations have had on the region within the last 20,000 years, and to a lesser extent, the surface effects of more recent erosion and deposition. Bedrock geology refers to the much older, solid rock layers that lie beneath Quaternary sediments.

Bedrock geology The bedrock units, which underlie Sheboygan County, range in age from Precambrain at depth, to Silurian at the surface. The oldest are impermeable crystalline rock of Precambrian age at depths that average more than 1,500 feet below the land surface.

Silurian dolomite, often referred to as Niagara, is the uppermost bedrock in Sheboygan County and reaches thicknesses up to 580 feet. Rocks underlying the Niagara dolomite are not visible in the County. Below the Niagara dolomite is a shale formation known as Maquoketa. It reaches a maximum thickness of 450 feet. The Maquoketa Shale overlies a dolomite formation, termed Platteville-Galena, which is approximately 500 feet in thickness. This rock formation, in turn, overlies Cambrian sandstones, which are 450 feet thick. All of these sedimentary rock formations overlie Precambrian igneous rocks. Map 2-1 shows the bedrock geology of Sheboygan County.

Quaternary Geology The last glacial ice of Quaternary glaciation, which left the planning area approximately 10,000 years ago, modified the bedrock surface by scouring highlands and depositing material in low lands created by ore-glacial erosion. Four types of Quaternary deposits are recognized within the region, including till, glaciofluvial sediments, shoreline deposits and organic deposits.

Till or unstratified drift is a mixture of unsorted, angular-to round-shaped sediments ranging in size from clay to boulders. Tills ice-contact deposits originating directly from glacial ice. Unlike till, glaciofluvial sediments are sorted by particle size that delineates the stratification.

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[Map 2-1: Bedrock Geology]

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Glaciofluvial sediments were deposited in a fluvioglacial environment involving glacial meltwater flow. Each individual layer of glaciofluvial sediments are characterized by a given grain size, ranging from pebbles and cobbles to sand or finer.

Ground and end moraines are two types of topographic landforms found in the region that consist primarily of till. A ground moraine is an irregular surface of till deposited by a receding glacier. The steeper slope points in the direction from which the glacier advanced. An end moraine is an accumulation of earth, stones, and other debris deposited at a glacier’s end stage.

At least one type of topographic landform consisting of glaciofluvial sediments occurs in some areas of the County. This type of topographic feature is an outwash plain, which is an apron of well sorted, stratified sand and gravel deposited by glacial meltwater. Glaciofluvial deposits, which contained large ice blocks that eventually melted, were pitted with depressions known as kettles. Glaciofluvial deposits of sand and gravel surround many drumlins; but these are often covered with a thin silt cap. Map 2-2 shows the Pleistocene Geology of Sheboygan County.

The most prominent ancient shoreline in the area is that of the Nipissing Great Lakes phase, which usually occurs at an elevation of 600-605 feet above sea level. The highest ancient shoreline in the area is that of the Algonquin phase, which occurs at elevations between 620 and 658 feet above sea level.

Topography Sheboygan County is attractive, in part, due to a variety of topographic features. The general topography of the County is characterized by a gently rolling landscape broken by areas of steep slope. Western Sheboygan County has greater areas with steep slope due to the glacial land formations. Map 2-3 shows all the soils with slopes greater than 12 percent in Sheboygan County.

Landforms in the County are glacial in origin, including drumlins, esker-like ridges, kames, stagnate-ice features, kettles and wetlands. These are unique landforms. The Kettle Moraine State Forest, located partially in western Sheboygan County, is an Interlobate Moraine that was formed when it was squeezed between two advancing glaciers. An interlobate moraine is a moraine with numerous kettles, formed between two lobes of ice. The Northern Kettle Interlobate Moraine contains a variety of glacial features, some of which were among the first in the country to be well described. This area is highly studied and mostly preserved by the Kettle Moraine State Forest-Northern Unit. Kettles are fluvioglacial landforms that occur as the result of blocks of ice calving from the front of a receding glacier and becoming partially to wholly buried by glacial outwash. These are shallow, sediment-filled bodies of water that are formed due to the retreating glaciers. Elkhart Lake is the largest kettle lake in the County.

Soils Soil is composed of varying proportions of sand, gravel, silt, clay, and organic material. The composition of a soil affects the specific properties of that soil. The properties must be evaluated prior to any development.

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[Map 2-2: Pleistocene Geology]

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[Map 2-3: Steep Slope]

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General Soils Description The general characteristics of soils are largely the result of various glacial depositional processes. Outwash soils were formed from glacial deposits that were derived from local bedrock formations. Organic soils developed under a forest cover consisting mainly of conifers and hardwoods in the north, in a cool and relatively moist climate. Sandy soils were formed from parent materials derived from sandstone bedrock pulverized by glacial ice.

Soils, in part, determine how much rainfall or snowmelt directly flows into the rivers, lakes, and wetlands, and how much infiltrates the ground. Water that infiltrates the ground replenishes soil moisture and recharges the groundwater system. Soils are grouped into general soil associations that have similar patterns or relief and drainage. These associations typically consist of one or more major soils and some minor soils. The general soil types can be divided into three broad categories: areas dominated by soils formed in glacial till; areas dominated by soils formed in glacial outwash and till; and areas dominated by organic soils.

The soils in Sheboygan County are diverse ranging from sandy loam to loam or shallow silt loam, and from poorly drained to well drained. In some areas, lacustrine sands are found overlying clays or bedrock within only a few feet of the surface. Poorly drained sands are common in the lake plain or in depressions between dunes and beach ridges. Important soils in the County include clays, loams, sands, and gravels. Map 2-4 shows the general soils in Sheboygan County. The dominant associations found in Sheboygan County include the Houghton, Boots, Casco, Coloma, Oakville, Theresa, Kewaunee, Manawa, and Hochheim soils.

The Houghton and Boots series soils are nearly level, poorly drained soils that were formed in herbaceous organic matter greater than 51 inches thick. These soils are typically found in depressions of old glacial lake areas. The native vegetation of these soils included ground cover of marsh grasses, sedges, and cattails and trees included tamarack, white cedar, and alders. The organic layer of these soils is very thick, measuring 60 inches or greater, with the top 14 inches typically black muck. Permeability of these soils is moderately rapid and available water capacity is very high; natural fertility is very low. The root zone of these soils is limited by the water table, which is frequently at or near the surface in areas that have not been drained by artificial means. The Houghton-Boots association is located in the marsh lands of Sheboygan County (Broughton Sheboygan Marsh Park and Wildlife Area and Kiel Marsh State Wildlife Area).

The Casco soils are found in nearly level to very steep areas. Casco soils are well drained and are underlain by stratified sand and gravel outwash. These soils are typically found on outwash plains, stream terraces, and the convex side of slopes of glacial moraines. Areas containing Casco soils have complex slopes. Native vegetation on these soils consisted mainly of oak and hickory trees. Permeability of these soils is moderate until approximately 17-inches below the surface where permeability becomes rapid. Available water capacity is low in Casco soils. Organic-matter content is moderate and natural fertility is low. The root zone of vegetation is limited by underlying sand and gravel. Areas where slopes are not too steep typically support corn, small grain, legumes, and other crops commonly grown in Sheboygan County.

Coloma-Oakville soils are found along the coast of Lake Michigan, typically in the areas south of the City of Sheboygan. These are very well drained soils located on nearly level to sloping

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[Map 2-4: General Soils]

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areas of old glacial lake plains, old beach ridges, and stabilized sand dunes. The native vegetation consisted of mixed deciduous and coniferous trees. The surface layer of the Oakville soils is dark brown, loamy fine sand approximately 8 inches thick. Permeability of these soils is very rapid and available water capacity as well as organic-matter content and natural fertility are very low. Most of the acreage consisting of these soils is used for woodlands. Some areas are used for pasturing and crops.

Theresa soils are nearly level to sloping; well-drained soils that are underlain by gravelly sandy loam or gravelly loam glacial till and are typically found on glacial till plains. The native vegetation in the area of these soils included deciduous forests mainly of maple, oak, basswood, beach, and hickory trees. Permeability of these soils is moderate and available water capacity is high. Organic-matter content and fertility is moderate. The majority of acreage consisting of these soils is used for crops. Some of the acreage is used for pasture and woodlands in areas where slopes are steeper.

Kewaunee soils are found on nearly level to moderately steep slopes, are well drained and moderately well drained, and are often formed in silty clay loam glacial till. These soils are found on glacial till plains. The native vegetation on these soils was forests consisting mainly of oak, maple, beech, basswood, and white pine. Permeability of Kewaunee soils is moderately slow and available water capacity is moderate. The organic-matter content of these soils is moderately low and natural fertility is medium. Areas with these soils typically are used for crops and pasture, but frequently remain was woodlands.

Boyer soils are found along Lake Michigan north of the City of Sheboygan. Boyer soils consist of gently sloping and sloping, well drained soils that are underlain by stratified sand and gravel. The native vegetation was a deciduous forest mainly of oak and hickory. Permeability is moderately rapid to a depth of about 26 inches and very rapid below that. Some of these soils are used for cropland, pasture, or woodland.

The Manawa series consists of nearly level and gently sloping, somewhat poorly drained soils formed in silty clay loam glacial till. These soils are in drainageways and depressions on till plains and old glacial lake basins. The native vegetation was forests of mainly maple, oak, beech, ash, and which pine. Permeability is slow, and available water capacity is moderate. The organic- matter content of these soils is also moderate and natural fertility is medium. These soils are located a mile off of Lake Michigan and cover most of the eastern half of the county.

Hochheim soils are found on nearly level to steep slopes, are well drained and underlain by gravelly sandy loam or gravelly loam glacial till. These soils are found on glacial till plains and on the sides and tops of drumlins that were formed during the last glaciation process. Permeability and available water capacity are moderate and organic matter content is moderately low; natural fertility is medium. Areas with these soils on slopes less than 15% are typically used for crops; in areas where slopes are steeper are frequently used for pasture and woodlands.

Suitability for Dwellings with Basements Within the Soil Survey of Sheboygan County, the Natural Resources Conservation Service (NRCS) provides information on the suitability and limitations of soils for a variety of natural resources and engineering uses. In particular, the soil survey provides information on the

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limitations of each soil for building site development, including the construction of dwellings with basements. Dwellings are considered to be structures built on shallow excavations on undisturbed soil with a load limit the same as for a single-family dwelling no higher than three stories. The ratings are based on soil properties, site features, and observed performance of the soils.

According to the NRCS, severe limitations mean soil properties or site features are so unfavorable or so difficult to overcome that special design, significant increases in construction costs, and possibly increased maintenance are required. Moderate limitations mean soil properties or site features that are not favorable for the indicated use and may require special planning, design, or maintenance to overcome or minimize limitation. Slight limitations mean soil properties and site features are generally favorable for the indicated use; the limitations are minor and easily able to be overcome. Refer to the Soil Survey for additional information regarding soil limitations for building site development. Map 2-5 shows soil suitability for dwellings with basements in Sheboygan County. This map is based on generalized data and is not a substitute for on-site soil testing.

Suitability for Septic Systems Municipalities in Sheboygan County use both private sewage systems and public sanitary sewer systems for the treatment and disposal of domestic wastewater. When building it is important to consider the properties of soils because without this, the private system may require expensive and frequent maintenance or result in premature failure of the system. Factors that are considered when evaluating soils for on-site waste systems include a high or fluctuating water table, depth to bedrock, soil permeability, and flooding frequency.

The Wisconsin Department of Commerce most recently updated its administrative code (COMM 83) on Private Onsite Wastewater Treatment Systems (POWTS) in July 2007. New technologies for private sewage systems are allowed under comprehensive revisions that were made to COMM 83 health and safety code in July of 2000. These new technologies give property owners the opportunity and flexibility to meet environmental performance standards with several pretreatment technologies that when incorporated into the system design, allows the use of soil absorption systems on sites with at least six inches of suitable native soil. The code allows for infill development where it was not permitted previously by the former plumbing code as interpreted by the now defunct Department of Industry, Labor and Human Relations. Housing and population density may increase in some areas due to the revisions of COMM 83; this in turn may increase the need for land use planning and integration of environmental corridors to address the adverse impacts related to development. Planning, along with land use controls, such as zoning, will help achieve more efficient development patterns.

Sheboygan County’s Sanitary Ordinance (70) reflects the provisions required in COMM 83 as well as some additional requirements for POWTS. Buildings and dwellings unable to connect to a public sanitary sewer system need a private sanitary system; the County Sanitary Ordinance was adopted to promote and protect public health and safety by assuring the proper siting, design, installation, inspection, management, and maintenance of private sewage systems.

There are over 8,900 private septic systems in Sheboygan County. The Sheboygan County Planning Department administers the 3-year maintenance program required by the State

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[Map 2-5: Soil Suitability for Dwellings with Basements]

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Administrative Code for these septic systems. This means that once every three years the septic system needs to be visually inspected and, if necessary, pumped by a certified septage servicing operator. This does not apply to the 700 holding tanks in the County, which are pumped on an as needed basis. The Sheboygan County Planning Department is also in charge of inspections at various stages in the siting, installation, and maintenance of these systems.

Metallic and Nonmetallic Mineral Resources Metallic mining in Wisconsin has occurred since the time of early settlement. Metals mined in the state include copper, lead, iron, and zinc, none of which are mined in Sheboygan County. There are also nonmetallic mining operations. Any new mines need to have a permit granted by the WDNR, which includes a reclamation plan. State Statute Chapter 295 requires that nonmetallic mining operations have a reclamation plan. This plan needs to describe what will be done with the land once mining operations cease. The State Statute then gives the power to the WDNR, who crated Wisconsin State Administrative Code NR135, which gave this authority to the counties; Sheboygan County has enacted a non-metallic mining program. The reclamation plan is a detailed technical document designed to meet the goals that will lead to successful reclamation and will help reduce the negative effects to the environment once the mine is abandoned. There is one mine in the Town of Rhine that has been recently reclaimed.

The Land and Water Conservation Department (LWCD) is in charge of issuing the permits for nonmetallic operations. According to the LWCD, there were approximately 17 active nonmetallic mining sites in Sheboygan County in July 2008. Two sites in the Town of Rhine recently became inactive. Sheboygan County operates five of the active mining sites. By looking at Map 2-6 one can see that western Sheboygan County has more potential gravel sources than the eastern portion of the County, which is why 16 of the 17 active non-metallic mining operations are concentrated in six towns. The Town of Plymouth has four active gravel pits (three of them County-owned), the Towns of Greenbush and Scott each have three, while three other towns each have two active gravel pits. The active gravel pits are also shown in Map 2-6.

Water Resources Lake Michigan The Great Lakes were formed during the Wisconsin Glaciation that occurred approximately 75,000- 10,000 years before present (B.P.). The Laurentide Ice Sheet entered the Lake Michigan area approximately 26,000 years B.P. This ice sheet reached its maximum extent approximately 16,000 years B.P. During this time, the ice sheet carved its way across the northern portion of North America. When the ice receded, runoff from the melting glacier was captured in the basins that were formed by the gouging ice of the glacier thereby forming the Great Lakes.

Lake Michigan is Sheboygan County’s largest water resource and the second largest Great Lake when measured by volume. Lake Michigan is 307 miles long, 118 miles wide, 925 feet at its maximum depth, with an average depth of 279 feet and consisting of approximately 1,660 miles of mostly sand and pebble beaches.

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[Map 2-6: Quarries & Potential Gravel Sources]

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Figure 2-4: Lake Michigan/Huron Historic Water Levels

Lake Michigan/Huron Historic Water Levels, 1918-2007 178.0

177.5

177.0

176.5

176.0 Lake Level (m, IGLD85) (m, Level Lake

175.5 Recorded Water Levels Long-term Average Water Levels 175.0

8 3 8 3 8 3 8 3 8 3 8 3 8 3 8 3 8 3 1 2 2 3 3 4 4 5 5 6 6 7 7 8 8 9 9 0 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 9 0 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 1 2 Year

Source: U.S. Army Corp of Engineers

There are concerns from various agencies about threats to the quality of Lake Michigan. Pollutants, habitat loss, and shifts in species composition in the Lake and in the coastal areas are important factors that continue to contribute to the degradation of the quality of the Lake Michigan Ecosystem.

The past several years we have seen a continued decline in the water levels of Lake Michigan. The drop has had a significant effect on the use of the bay and rivers feeding to it. With lower water levels, more of the shoreline is exposed and wet areas become dry.

In December 1999, the water level of lakes Michigan and Huron continued to drop, passing the Low Water Datum elevation of 577.5 feet (176 meters) above the International Great Lakes Datum of 1985. The occurrence of the water level dropping below the Low Water Datum has become more frequent since 1999, occurring multiple times in a year. In 2003 the water level was lower than the Low Water Datum for nine months and in 2006 and 2007 the water level was lower than the datum for six months. The long-term average lake level is 579 feet (176.44 meters). The water levels have not reached the long-term average water level since November 1998. There has also been a two-foot drop in water level since 2004.

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The Lake Michigan basin is the area of land where rivers and streams all drain into Lake Michigan. The Lake Michigan drainage basins covers more than 45,000 square miles and drains parts of four states including Wisconsin, Illinois, Indiana, and Michigan. In Sheboygan County, the Milwaukee River and Sheboygan River Basins make up the majority of the land area within the County and both drain into Lake Michigan.

Lake Michigan has unique conditions that can support a wide variety of species, including plants and animals that are not found anywhere else in the world. The sand dunes, coastal marshes, tallgrass prairies, savannas, forests, and fens provide essential habitat for numerous wildlife. Agricultural and industrial products such as iron ore, coal, limestone, metals, petroleum, coke, and chemicals are derived from the resources within the Lake Michigan Basin. The lake area serves the commercial and sport fishing industries. Lake Michigan provides a source of fresh drinking water, cooling water for industries, and water for agricultural practices in the region. Finally, the lake provides a scenic setting for recreation activities such as camping, swimming, fishing, and bird watching.

The U.S. Army Corps of Engineers released a report stating that lake level decline is due to several natural and man-made factors. Some of these factors include precipitation, snowmelt runoff, groundwater supply, and evaporation. In 1997 the water levels were near record levels, following years of above normal rain and snowfall. In 2009, the International Join Commission was working on a draft report from the International Upper Great Lakes Water Level Study. One of the parts of the study discusses the Lake Michigan diversion of water withdrawn from Lake Michigan-Huron at Chicago, and runoff from the Chicago area that in its natural course formerly drained into Lake Michigan-Huron. The water is used for domestic, sanitary, and navigation purposes in the Chicago area and is discharged into the Mississippi River. Although water has been diverted from Lake Michigan-Huron at Chicago since 1848, it was not until 1900 that completion of the Chicago Ship and Sanitary Canal and related control structures allowed for the reversal of the Chicago and Calumet Rivers. This diversion reached a peak of more than 300 m3/s (10,600 ft3/s) in the 1920s; however, a 1967 U.S. Supreme Court decree (amended in 1980) limits the long-term average diversion to no more than 91 m3/s (3,200 ft 3/s) and allows some variations in any year within certain specified limits. This diversion lowers the long-term mean levels by 6 cm (2.4 in) on Lake Michigan-Huron.

In 2000 the Army Corp of Engineers stated “probably the most significant factor during the past three years of declining water levels has been the decrease in snow cover.” In winter 2007-2008 and spring to summer 2009 Sheboygan County received above average rainfall.

Threats to Lake Michigan and its Coastal Resources The quality of Lake Michigan is a concern to many agencies and organizations that study its health. Pollutants, habitat loss, and shifts in species composition in the lake in the coastal areas are important factors that continue to contribute to the degradation of the quality of the Lake Michigan Ecosystem. Even though reductions have been made in pollutant levels over the past 25 years, data continue to show toxic pollutants continue to create negative impacts on the physical and biological elements of the ecosystem.

In 1972, the United States and Canada signed the Great Lakes Water Quality Agreement (GLWQA) that was subsequently renewed in 1978. This agreement expressed the commitment

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of both countries to restore and maintain the chemical, physical, and biological integrity of the Great Lakes Basin Ecosystem. The Agreement was amended in 1987 and aimed at strengthening the programs, practices, and technology that were described in the 1978 renewal; the amended agreement increased accountability for implementing these programs and practices and set specific timetables for these activities.

The GLWAQ creates the International Joint Commission. The Commission monitors and assesses progress under the Agreement and advises Governments on matters related to the quality of the boundary waters of the Great Lakes system. The Agreement also calls upon the Commission to assist the Governments with joint programs under the Agreement, and provides for two binational boards (the Great Lakes Water Quality Board and the Great Lakes Science Advisory Board) to advise the Commission.

One outcome of the GLWQA was the development of the Lake Michigan Lakewide Management Plan (LaMP) 2000 that addresses 14 warning signs of an impaired ecosystem. The Lake Michigan LaMP is updated every two years to provide a status report on the health of the Lake Michigan ecosystem and a summary of the activities related to the Lake Michigan LaMP that has occurred during the past two years. The vision of the LaMP is to create “a sustainable Lake Michigan ecosystem that ensures environmental integrity and that supports and is supported by economically viable, healthy human communities.” The status of the Lake is measured against the long-term goals and targets for 2020. Since the LaMP 2000, several key indicators point to the continuing concern for the health of the ecosystem, such as beach closings, the discovery of new aquatic nuisance species, PCBs and mercury in fish, climatic pattern changes, and other concerns, but the news is not all bad. The most recent LaMP was completed in 2008 and can be obtained on the U.S. Environmental Protection Agency website.

Progress is being made in protecting the ecosystem. Lake Michigan was selected as one of three pilots to test a new national monitoring design. With this system, key pollutants to Lake Michigan are being identified, reviewed, and monitored, remedial action plans are developed for the Lake Michigan Area of Concerns (AOCs), and these plans are being linked to the goals set forth in the LaMP. The main action agenda items for the LaMP are protecting human health, restoration and protection of the Lake, sustainable use, remediation and pollution prevention, information sharing, and research and monitoring. Over the course of the eight years since the original LaMP, many actions have occurred that strive to meet the subgoals that have been created. More specific information on the LaMP can be found through the U.S. Environmental Protection Agency (EPA).

Many agencies are taking part in protecting the Great Lakes. In 2004, the Great Lakes Regional Collaboration of Natural Significance (GLRC) was created, using a unique partnership of key members from federal, state, and local governments, tribes and other stakeholders for the purpose of developing a strategic plan. This group developed a strategy and recommendations for action focused on the steps that should be taken over the next five years to proceed with restoration of the Great Lakes. The key recommendations are:

¾ Stop the introduction of more aquatic invasive species that can prevent significant future ecological and economic damage to the Great Lakes. ¾ There is a need for significantly more habitat conservation and species management.

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¾ Minimize the risk to human health resulting from contact with near shore waters whether through drinking water or a variety of recreational activities. ¾ None of the 31 Areas of Concern along the Great Lakes have been restored to date, so a dramatic acceleration of the cleanup process is need at these AOCs. ¾ Actions need to be taken to address nonpoint sources of population ¾ Toxic pollutants such as mercury and PCBs remain present in fish at levels that warrant advisories and restrict consumption through the basin, these pollutants need to be addressed. ¾ It is essential to have a sound information base and representative indicators to understand what is happening in the Great Lakes ecosystem. ¾ Ensure the long-term sustainability of the Great Lakes by changing the way we approach things such as land use, agriculture and forestry, transportation, industrial activities, and many others.

Most recently there has been great strides taken to ensure that water from the Great Lakes remains in the Great Lakes Basin. This is to ensure that water is not taken out of the system faster than it can be replenished. In 2005, following nearly five-year negotiations, the governors of Illinois, Indiana, Michigan, Minnesota, New York, Ohio, Pennsylvania, and Wisconsin reached an agreement on the Great Lakes-St. Lawrence River Basin Water Resources Compact. During 2007 and 2008, all the states ratified this Compact. This Compact then gained U.S. Senate approval on August 1, 2008 and U.S. House of Representatives approval on September 23, 2008. The Provinces in Canada are working to pass a similar agreement, in order to have regional consistency. Some highlights on this compact include:

¾ Economic development will be fostered through sustainable use and responsible management of Basin waters. ¾ For the most part, there will be a ban on new diversions of water from the Basin but limited exceptions could be allowed in communities near the Basin when rigorous standards are met. ¾ Communities that apply for an exception will have a clear, predicable decision making process; standards to be met; and , opportunities to appeal decisions. ¾ The State will use a consistent standard to review proposed uses of Basin water. ¾ Regional goals and objectives for water conservations and efficiency will be developed, and they will be reviewed every five years.

The passing of this compact will protect the Great Lakes, including Lake Michigan for years to come.

Pollutants To accomplish the goals of the LaMP, a Critical Pollutants Work Group was formed which consisted of technical staff from the US Environmental Protection Agency, the US Fish and Wildlife Service, the US Geological Survey, and experts from the four states adjacent to Lake Michigan. Together, this group developed a process for listing and delisting substances as pollutants of concern and identified pollutants that were currently impacting Lake Michigan. The group categorized pollutants of concern into three levels based on the degree of association with known impairments in the Lake, their distribution and frequency of occurrence. They are critical

2-19 Sheboygan County Comprehensive Plan Adopted pollutants, pollutants of concern, and emerging pollutants. Table 2-1 shows some of the pollutants in each category.

Critical pollutants are the most harmful to the ecosystem and programs to mitigate their persistence in the environment are a top priority. Pollutants in the category impair beneficial uses due to their presence in open lake waters, their ability to cause or contribute to failures to meet objectives set by the GLWQA, or their ability to bioaccumulate. Critical pollutants for Lake Michigan identified by the Work Group are located in Table 2-1. Mercury is a critical pollutant to area bodies of water, not just Lake Michigan. People in the U.S. are mainly exposed to mercury, an organic compound, when they eat fish and shellfish that contain mercury. Humans who are exposed to mercury may have different health effects depending on the type and length of exposure, but some common effects for fetuses, infants, and children is impaired neurological development.

Table 2-1: Critical Pollutants for Lake Michigan Critical Pollutants Pollutants of Concern Emerging Pollutants Total PCBs Hexachlorobenzene Atrazine Chlordane Toxaphene PCB substitute compounds Dioxin Cadmium Selenium Mercury Copper Dieldrin Arsenic DDT/DDD/DDE PAHs Furans Chromium Zinc Cyanide Source: Critical Pollutants Work Group

Based on the recommendations of the Work Group, the LaMP will be focusing on addressing these pollutants, according to priority level. Area of Concern Another component of the GLWQA is an agreement to develop remedial action plans (RAPs) for the 43 Areas of Concern identified by the International Joint Commission. The Sheboygan River encompasses the lower Sheboygan River downstream from the Sheboygan Falls Dam, including the entire harbor and nearshore waters of Lake Michigan. The Sheboygan River Area of Concern (AOC) serves as a settling area for pollutants transported from three watersheds: the Sheboygan River, Mullet River, and Onion River. Pollutants of concern in the Sheboygan AOC are:

¾ Suspended Solids ¾ Fecal Coliform Bacteria ¾ Phosphorus ¾ Nitrogen ¾ PCBs ¾ PAHs ¾ Heavy Metals

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Other criteria contributing to designation as an Area of Concern are Beneficial Use Impairments. Of the 14 beneficial uses these are impaired for Sheboygan River:

¾ Restrictions on fish and wildlife consumption ¾ Eutrophication or undesirable algae ¾ Degradation of fish and wildlife populations ¾ Fish tumors or other deformities ¾ Bird or animal deformities or reproduction problems ¾ Degradation of benthos ¾ Degradation of phytoplankton and zooplankton populations ¾ Restriction on dredging activities ¾ Loss of fish and wildlife habitat

Greater information on the AOC and the use impairments can be found in Appendix 3.

A two-year cooperative effort of Wisconsin Department of Natural Resources (WDNR), other agencies, researchers and the citizens of the Sheboygan area resulted in the completion of a Sheboygan River and Harbor Stage One RAP in 1989. Progress has been made in implementing the Stage One RAP and developing additional recommendations for restoring beneficial uses. Following a Remedial Investigation and Enhanced Screening, an emergency removal of PCB contaminated sediments in the upper portion of the Sheboygan River was completed in 1991. A total of 4,100m3 of PCB-contaminated sediments were removed. In 1992, monitoring of soil and groundwater for total PAHs, cyanide, arsenic and nickel at the Coal Gasification Plant site began in spring of 1992. Results of these investigations showed that the County had levels for these substances higher than state enforcement standards.

In 1994, the Wisconsin Department of Natural Resources with the assistance of other local stakeholders outlined activities targeted for implementation and progress toward development of a comprehensive strategy for restoring water quality, fisheries, recreational uses and other benefits of the Sheboygan River Basin. The 1994 RAP was published in October 1995. In 1998, the Sheboygan River Basin Partnership (SRBP) was formed. The SRBP is an alliance of volunteers from conservation and environmental groups; local businesses; local, state and federal agency staff; and individuals working together on natural resource issues in the Sheboygan River Basin. In 2004, SRBP members formed an AOC Committee to coordinate with local, State, and Federal agencies and other interested parties to implement the RAP. The WDNR and SRBP are working together to develop a process to establish delisting targets. In 2006, a RAP update for the AOC was in progress.

The varies activities occurring in the Sheboygan AOC are contributing to successful achievement of alleviating the beneficial use impairments. However, to improve the quality of the Sheboygan River Basin ecosystem and achieve the "desired future state" will require a long-term commitment from all levels of government, as well as local interest groups and citizens. Successful implementation of the RAP will require the cooperation of all stakeholders and a willingness of the Basin's citizens to voluntarily change the way they conduct their everyday lives.

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Erosion Coastal erosion occurs throughout all of the Great Lakes and is a concern because of the potential for property loss and damage, loss of infrastructure, public health and safety issues, water quality degradation, and loss of habitat. Coastal erosion is characterized by the landward retreat of the shoreline or the bluff edge and includes the narrowing loss of beaches, dunes, coastal barriers, and associated wetlands and lakebed down cutting in the nearshore area. Coastal erosion rates in Sheboygan County range from 0.20 to .49 meters per year (8-20 inches per year).

There are three types of erosion processes that typically effect coastal areas. These include wave attack, mass wasting, or surface water. Wave attack (or toe erosion) degrades bluff and beach areas through the constant motion of the water. Waves are generated by wind and storms. The impact of wave action is a function of the climate and is dictated by wave direction, magnitude, and frequency. Waves remove material from the base of the bluff areas, making them unstable. As the bluffs are eroded by wave action, sediment is transported along the shore creating, or destroying, beaches and dunes.

Mass wasting occurs as soil creep, debris flows, or slides and slumps or some other process that will transport materials down a slope; these processes are driven by gravity and frequently occur on steep, unstable slopes. Depending upon whether or not the materials are consolidated or unconsolidated, the rates and types of bluff failure will be different. Groundwater is often a major contributing factor to the mass wasting process. Frequently, wave attacks on a shoreline will lead to a mass-wasting event. As time proceeds, the process begins again and eventually a major mass-wasting event occurs again. Surface water including that from precipitation and groundwater (climate driven), as well as septic tanks and lawn sprinklers (human driven) washes material away. Sheet and rill erosion often occur on un-vegetated slopes. Ravine and gully erosion can also undermine a bluff or dune area. The freeze/thaw cycle also contributes to failures of bluff areas.

The erosion rate in a coastal area is dependent upon the width and elevation of a beach area, the available sediment supply, the slope of the coastline, shoreland protection (natural and artificial), climate, such as storms, precipitation, surface water, groundwater, and lake levels, and vegetation. Other impacts to shoreland areas of the Great Lakes include lakebed down cutting and beach alterations such as barriers including piers and improperly installed erosion protection structures.

Two “regions”, the bluff areas north of the City of Sheboygan and the dune areas south of the City of Sheboygan characterize the coastal landscape of Sheboygan County. The bluffs north of the City of Sheboygan average approximately 50-feet in height. This area is composed of cohesive glacial till, lacustrine clays, unconsolidated clays, silts, sands, and outwash deposits. The soils in this area tend to become easily saturated by high groundwater levels. This soil saturation is a major contributor to bluff erosion along the coast in this area. Upon saturation the soils become heavy, weakening the structure of the bluff; this coupled with the dynamic wave action of Lake Michigan at the base of the bluff area, make bluff erosion and slumping an ongoing hazard that must be continually mitigated through shoreline regulation and erosion control projects. Map 2-7 shows the summary of Lake Michigan Erosion and Bluff Stability Analysis that was completed by Bay Lake Regional Planning Commission and others in 1996.

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The areas south of the City of Sheboygan are made up of a ridge and swale complex with numerous pockets of coastal wetlands gaining protection from Lake Michigan by a series of dune areas. Quartz sand beaches and dunes are underlain by cohesive clays (glacial till) or bedrock. This area is subject to impacts from development due to the high value of real estate along the shores of Lake Michigan. Perhaps one of the greatest potential impacts to the quality of Lake Michigan and the dune areas is the placement of septic systems in coastal dunes. Frequently, the dune area is sited as the only suitable area for a septic system. Currently, state law does not prohibit placement of septic systems in these areas, nor are counties allowed to restrict placement in these areas.

The US Army Corps of Engineers and the Wisconsin Coastal Management Program have recently completed a comprehensive analysis of erosion along the coastal areas of the Great Lakes. Through a modeling process, the Corps of Engineers calculated potential coastal erosion rates and future hazard areas that may impact the resource and the human population. As information from this study becomes available, it will be used as the basis for future programs and policies related to land use regulation in the bluff area.

Drainage Basins Sheboygan County encompasses some of the most scenic and critical watersheds within Wisconsin. All the watersheds in Sheboygan County drain into the Lake Michigan Watershed either through major rivers or direct drainage to the lake. There are three major drainage basins in Wisconsin. They are the Lake Superior, the Lake Michigan and the Mississippi River Basins. Sheboygan County lies entirely within the Lake Michigan Drainage Basin. These drainage basins are then made up of water management units and geographic management units, as well as watersheds that drain into one larger river. Sheboygan County lies within the Lakeshore, Sheboygan, and Milwaukee River Basins, otherwise referred to as the Geographic Management Units by the WDNR.

Watersheds There are parts of nine watersheds in Sheboygan County. A watershed can be defined as an interconnected area of land draining from surrounding ridge tops to a common point such as a lake or stream confluence with a neighboring watershed; it is the area of land where all water on it and under it drains to the same place. All lands and waterways contribute drainage to one watershed or another. Map 2-8 identifies the watersheds in Sheboygan County.

Wisconsin initiated a process to rank watersheds for nonpoint source problems back in the mid- to-late 1980s to identify high priority areas under the state's Nonpoint Source Pollution Abatement Program. As management of nonpoint source problems have changed, so have the nonpoint source ranking process. In October 2002, administrative rules for the prevention and management of polluted runoff from rural and urban land use activities went into effect; these new and revised rules replace the Wisconsin Nonpoint Source Water Pollution Abatement Program (NPS Program) which was created in 1978 by the state legislature. These eight new rules written by the WDNR, with one rule promulgated by the Wisconsin Department of Agriculture, Trade, and Consumer Protection (DATCP), are in response to 1997 Wisconsin Act 7 and 1999 Wisconsin Act 9 which required changes to the WDNR’s nonpoint source water pollution abatement program and the DATCP’s soil and water resources management program.

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[Map 2-7: Summary of Lake Michigan Erosion and Bluff Stability Analysis: 1996]

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[Map 2-8: Watersheds]

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Now the WDNR not only ranks watersheds for stream, lakes and groundwater - (high, medium, or low), but individual streams and lakes in the State can be ranked according to expressed impacts from nonpoint source pollution and the waterbody's potential response to best management practices.

The WDNR uses these watershed and waterbody rankings for several purposes: 1) to identify priority areas for best management practice implementation, 2) to help guide funding decisions under nonpoint source related programs, and 3) to convey nonpoint source priority areas to counties for county land and water planning, specifically work tasks and other activities related to BMPs and performance standards implementation.

A brief description of the nine watersheds within Sheboygan County is provided below. This descriptions include the predominate land use as well as the possible sources of nonpoint source pollution. Under the new ranking system, all nine watersheds that are wholly or partially in the County are currently ranked high for their overall nonpoint source pollution. The watershed’s rank helps determine what type of funding the watershed may received from the WDNR. These rankings are based on factors such as impairments to streams and lakes within the watershed, along with other factors.

North Branch Milwaukee River Watershed is located in portions of Fond du Lac, Sheboygan, Ozaukee, and Washington counties and has a drainage area of 150 square miles. Land cover is primarily rural with agriculture dominant. Sources of nonpoint pollutants included runoff from animal waste, sedimentation from crop fields, urban construction sites, stream bank erosion, and manure. According to the Wisconsin Natural Heritage Inventory (NHI), there are many known occurrences of rare species and natural communities in the Milwaukee River Watershed.

East and West Branches Milwaukee River Watershed covers 266 square miles and is located in portions of Dodge, Fond du Lac, Ozaukee, Sheboygan, and Washington counties. Land cover is primarily rural with agriculture dominating. Sources of nonpoint pollutants included wetland drainage, urban runoff and agricultural runoff contributing nutrients and sediment.

Onion River Watershed was one of the first watersheds targeted under the old Nonpoint Source Water Pollution Abatement Program. The watershed covers 98 square miles and has 124.2 miles of streams. It flows southerly for about half its length before turning northward, entering the Sheboygan River in the city of Sheboygan Falls. Belgium Creek is the only major tributary to the Onion River. Land use in the watershed is primarily agricultural. The entire Village of Waldo, most of the Village of Belgium, and small portions of the Village of Cedar Grove, and the City of Sheboygan Falls comprise the urban areas of the watershed. Water quality in the watershed ranges from excellent to good in the headwater areas to fair to poor in the lower sections. Sources of nonpoint pollutants included sedimentation, agricultural and urban runoff, pasturing practices, and stream bank erosion.

Pigeon River Watershed is a 30-mile long tributary of Lake Michigan that lies within the Sheboygan River Basin. It forms at the confluence of the Pigeon and Meeme River Branches near the Sheyboygan-Mantitowoc County line. Sources of nonpoint pollutants include sedimentation, stream bank erosion, construction and feedlot runoff. This project is not yet complete, but will be ending in 2009.

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Sevenmile-Silver Creeks River Watershed is 113 square miles. The Sevenmile-Silver Creek Watershed includes several smaller streams: Silver Creek, Memee Creek, Sevenmile Creek, Calvin Creek, Pine Creek, Point Creek, Fischer Creek and Centerville Creek. Silver Creek is 14 miles in length, while Point Creek is 12 miles long. There are many direct and indirect tributaries to Lake Michigan in the Basin, including Sevenmile Creek. Sevenmile Creek is located in northern Sheboygan County in the Town of Mosel. Filling, erosion problems, nutrient loadings, and pesticide and agricultural runoff threaten the basin’s 62,191 acres of wetlands, as well as Lake Michigan. Managing runoff and other sources of nonpoint source pollution will improve the quality of this watershed. This project has also been completed.

Sheboygan River Watershed originates in east-central Wisconsin and drains an area of land situated between Lake Winnebago and Lake Michigan. The watershed is a sub-basin of the larger Sheboygan River drainage basin that includes: the Sheboygan River, the Pigeon River, Mullet River, Onion River, Black River, and direct tributaries to Lake Michigan. The Sheboygan River Watershed drains approximately 245 square miles. The watershed lies in portions of four counties: Sheboygan, having the largest contributing drainage area with 52 percent of the watershed (127 square miles); Fond du Lac, containing 30 percent of the watershed (74 square miles); Calumet, 7 percent (17 square miles); and Manitowoc, making up 11 percent of the watershed (27 square miles). The majority of the population living in the watershed resides in incorporated areas, primarily concentrated in the metropolitan area of Sheboygan, Sheboygan Falls, Kiel, and the village of Kohler. Land uses in the watershed are primarily rural. Most of the land is used for agricultural purposes, with milk production and dairy products being the predominant industry in all four counties. Sources of rural nonpoint pollutants most commonly found in this watershed include sediment from crop and stream bank erosion, polluted runoff from barnyards and feedlots, and runoff from winter-spread with livestock manure. Sources of urban nonpoint pollutants include construction sites, freeways, industrial areas, commercial areas, and residential areas.

As stated previously, the Sheboygan River Watershed has been designated as a Great Lakes Area of Concern by the International Joint Commission. The Sheboygan River Watershed is the most studied watershed in the Sheboygan River Basin. Many researchers have conducted studies to determine the effects of polychlorinated biphenyl (PCB) uptake in fish and wildlife in the lower 14 miles of the Sheboygan River. This section of the river is listed as a Federal Superfund site. Cleanup on this site is taking place, as sediment filled with polychlorinated biphenyls (PCBs) has been removed and sediments have been dredged. Ongoing monitoring will now occur. There is a status review of the cleanup to date that is scheduled to start fall 2008. This is the first five-year review for the Sheboygan River and Harbor. A five-year review report will be completed by September 2009.

Black River Watershed is located entirely within Sheboygan County and contains the 11.4-mile Black River. It is characterized primarily as natural lowlands with adjacent agricultural areas. Sources of rural and urban nonpoint source pollutants include channel modification, construction site erosion, and increased imperviousness contributes to flash flows, increased nutrients, bacteria, and sedimentation.

Mullet River Watershed is about 98 square miles and it originates at the outlet of Mullet Lake in Fond du Lac County, running northeast into Sheboygan County. The river then runs east and

2-27 Sheboygan County Comprehensive Plan Adopted drains into the Sheboygan River near Sheboygan Falls. Land use in the Mullet River watershed is primarily agricultural. Sources of rural and urban nonpoint pollutants include runoff from barnyards, eroding agricultural lands, and stream bank erosion.

Sauk and Sucker Creeks Watershed includes a small portion of Sheboygan County, but is predominately in Ozaukee County. Sauk and Sucker Creeks flow southward entering into Lake Michigan in and near Port Washington. Agriculture is the dominant land use in the Sauk and Sucker Creek Watershed; however, it is an urbanizing watershed. Sources of nonpoint pollutants include erosion from construction sites, run off from impervious surfaces, agricultural runoff, stream bank erosion, and sedimentation. These pollution sources and habitat modifications are contributing to the high concentrations of nutrients and suspended solids and sediment observed in the watershed.

Surface Waters There are numerous lakes and rivers in Sheboygan County. The most significant surface water feature is Lake Michigan. Map 2-9 shows the surface water features in Sheboygan County.

Lakes (Map 2-9) ¾ Lake Michigan Lake Michigan borders on the eastern edge of Sheboygan County. Bottom type consists mainly of bedrock on exposed shores, and sand within the bays and shallow shores. Coho & Chinook salmon, lake trout, northern pike, and yellow perch are the dominant sport fishes, with the occasional smallmouth bass, walleye and rainbow trout. Most sport fishing occurs in the bays. Lake trout numbers are expected to increase with the better control of lampreys. Access of the larger pleasure crafts is restricted to harbor sites because of the rocky and shallow, sandy shores. This area of Lake Michigan averages between 80 and 120-feet deep waters within two miles of shore.

¾ Sheboygan Lake is a drainage lake located within the Broughton Sheboygan County Marsh. It covers more than 674 acres within the 14,000-acre marsh, but averages no more than 3 feet deep.

¾ (Big) Elkhart Lake in Sheboygan County has approximately 300 surface acres and a maximum depth of 119 feet. It is the largest kettle moraine in the county and the fourth deepest lake in the state. Increase in fertility is gradual and due mainly to septic tank seepage and some isolated surface water runoff from cropland and farm operations. The fishery of the lake includes walleye, panfish and smallmouth bass. Public access is provided. Elkhart Lake is also part of the Great Lakes Spotted Muskellunge Stocking Program. Elkhart Lake is used as a brood stock for this type of musky.

¾ Crystal Lake is located in the town of Rhine near the Village of Elkhart Lake. The lake is 113 acres and is heavily used for fishing and boating. Crystal Lake incorporates an extensively developed shoreline which fosters productive fishing in early morning and late evening when northern, crappie, perch, walleye, bass, and bluegills are caught.

¾ Little Elkhart Lake is adjacent to Big Elkhart Lake and is known for fishing. The size of motors allowed on the lake is limited. The lake covers 47 acres and has a maximum depth of 21 feet.

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[Map 2-9: Surface Water & Navigability]

2-29 Sheboygan County Comprehensive Plan Adopted

¾ Gerber Lake consists of two contiguous basins covering approximately 22 acres in the town of Rhine. The basins are spring-fed and are known for largemouth bass and bluegill fishing. No motorboats are allowed on the lake.

¾ Jetzers Lake is a small lake located in the Town of Herman covering around 14 acres. The lake is spring-fed and has an outlet to the Pigeon River.

¾ Random Lake is the second largest lake in Sheboygan County with 213 acres in area. It is the first large lake north of Milwaukee and has a public fishing pier, boat landing and docking piers, public beach, picnic area and swimming at Lakeview Park.

¾ Lake Ellen is the third largest lake in the County with 121 acres located just South of the Village of Cascade. Lake Ellen has public access that is owned and maintained by the WDNR. The lake is most productive for panfish but walleye and largemouth bass are common.

¾ Lake Seven Lake Seven is 27 acres and has a public access that is owned and maintained by the WDNR. The lake produces small catches of large bluegills and numerous largemouth bass.

¾ Beachwood Lake Beachwood Lake is 11 acres and has a public access that is owned and maintained by the Town of Scott. Bullheads, panfish, and northern pike are abundant in Beechwood Lake.

¾ Crooked Lake Crooked Lake is a 91-acrea lake that has a public access that is owned and maintained by the Wisconsin Department of Natural Resources. Crooked Lake is most productive for panfish.

Other Sheboygan County surface waters include:

Haack Lake Bear Lake Spring Lake Bullet (Bullhead) Lake Grasse Lake Glenbeulah Mill Pond Cedar Lake Hingham Mill Pond Kellings Lakes Plymouth Mill Pond Mud Lake Waldo Mill Pond Butler Lake

Rivers, Streams and Creeks Nichols Creek is the only stream or river to have been designated as outstanding resource water, while Ben Nutt Creek is designated an exceptional resource waters by the state of Wisconsin. This designation under Wisconsin Administrative Code NR 102 establishes water quality standards for different classes of surface waters in the state.

Sheboygan County is characterized by a number of major river systems that flow from west to east across the County. Major rivers in the County include:

2-30 Sheboygan County Comprehensive Plan Adopted

¾ The Mullet River originates at the outlet of Mullet Lake in Fond du Lac County and runs generally east before joining the Sheboygan River in the City of Sheboygan Falls. The two named tributaries to the Mullet River are La Budde Creek and Jackson Creek. The watershed contains nearly 2 miles of Class I trout water, 10 miles of Class II trout water and nearly 35 miles of streams supporting a warm water sport fish community.

¾ The Sheboygan River originates in east-central Fond du Lac County and flows generally southeastward into the City of Sheboygan where it enters Lake Michigan. The major tributaries to the Sheboygan River are the Onion and Mullet Rivers. Other named warm water tributaries to the Sheboygan River are Otter and Weeden Creeks. Millhome, Schuett and Feldner’s Creeks are trout streams located in the Sheboygan River Basin. There are also nine dams in the Watershed: Sheboygan Marsh, Kiel, Rockville, Millhome, Johnsonville, Sheboygan Falls, Waelderhaus, Riverbend and Mischo’s. The Franklin dam was removed in 2001, restoring this river reach to a free-flowing condition. The positive change in flow, temperature, and oxygen levels will result in habitat suitable for game fish species such as smallmouth bass, northern pike, and rock bass.

¾ The Onion River flows southerly for about half its length before turning northward, entering the Sheboygan River in Rochester Park in the City of Sheboygan Falls. Belgium Creek is the only major tributary to the Onion River. There are two dams on the Onion River, which form the Waldo and Hingham impoundments.

A creek that is being rehabilitated by the SRBP is Willow Creek, which is 5-mile tributary to the Sheboygan River and considered a remnant coastal resource that supports reproducing anadromous salmonid populations within a rapidly urbanizing region of east-central Wisconsin. Another creek of importance to the area is Fisherman’s Creek; the SRBP has received a County Stewardship Grant for the creation of a rehabilitation plan for this area.

Some of the rivers, streams, and creeks in the County have dams. Many of the dams were built in the late 1800’s and 1900’s in Wisconsin. Regardless of size, dams can have profound effects on stream ecosystems. Dams can change free flowing streams into bodies of water more resembling ponds or lakes (called impoundments). Because streams and rivers carry sediment and nutrients from runoff and natural processes, these impoundments tend to act as sinks that slowly fill in with sediment and become shallow. Dams and their impoundments displace many of the native species that thrive in a flowing environment. Dam structures prevent or slow migration of fish and other aquatic life within the stream ecosystem, thereby, having effects throughout the food chains of streams or rivers.

Another problem dams can cause is that over time water pressure and weathering will slowly break down a dam. Dams need constant maintenance and repairs. If dams are allowed to naturally degrade, they have a greater risk for problems such as sudden breaks in flood conditions. The possibility for loss of life and property damage make dam maintenance an important issue. Dams left to deteriorate in place can also pose a threat to the life and health of the public using waterways for swimming and boating. Chapter 31, created in 1917 under the Water Power Law, was developed to ensure that dams are safely built, operated, and maintained. NR 333 provides design and construction standards for large dams and NR 335 covers the administration of the Municipal Dam Repair and Removal Grant Program. Two of Sheboygan

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County’s dams have been removed since 2001, the Franklin Dam and the Meyer Dam. Map 2-10 shows all of the dams, both current and historic in Sheboygan County. The WDNR is responsible for administration of these regulations. The most common problems for dams are undesirable woody vegetation on the embankment, deteriorated concrete, inoperable gates, and corroded outlet pipes.

Trout Streams Trout streams have been categorized for many years, but since 1990, a category system has been used to manage a variety of fishing opportunities that anglers desire. Size and limits on the number of fish vary by category to match the productivity of the stream, the fishing pressure, and the local fishing community. Class I trout streams are high quality trout waters that have sufficient natural reproduction to sustain populations of wild trout, at or near the limits of the waterway. Class I streams tend to be small and may contain small or slow-growing trout, especially in the headwaters areas. Class 2 trout streams may have some natural, in-stream reproduction, but not enough to use all of the available food and habitat in the stream. As a result, stocking is required to maintain a strong sport-fishing population in these streams. Class 2 streams have a good survival rate and often produce some fish larger than average. In Sheboygan County there are 38.4 miles of trout streams, of which 20.3 miles are Class 1 and 18.1 miles are Class 2. Table 2-2 shows the trout streams in Sheboygan County.

Table 2-2: Trout Streams in Sheboygan County STREAM CLASS TYPE FISH TYPE MILES Ben Nutt Creek- to Junction with Mill Creek Class 1 Brown Trout 6.0 Glenbeulah Springs Class 2 Brook Trout 0.5 Gooseville Creek- North branch and below Class 1 Brown Trout 1.0 junction to Milwaukee River Gooseville Creek- South branch only Class 2 Brook Trout, Brown Trout 0.9 Jackson Creek Class 2 Brook Trout, Brown Trout 1.8 LaBudde Creek- Upstream from Badger Class 1 Brook Trout 1.7 Road LaBudde Creek- Downstream from Badger Class 2 Brook Trout 2.7 Road to Mullet River Melius Creek Class 2 Brown Trout 3.3 Mill Creek Class 1 Brown Trout 2.2 Mullet River from Glenbeulah Pond Dam to Class 2 Brown Trout 2.0 State Highway 67 Nichols Creek to State Highway 28 in Class 1 Brook Trout, Brown Trout 3.8 Cascade Onion River to County Road N Class 1 Brown Trout 5.2 Watercress Creek- All Class 2 Brown Trout 3.3

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STREAM CLASS TYPE FISH TYPE MILES Chambers Creek to County Road W Class 1 Brook Trout 2.0 Schuett Creek- All Class 1 Brown Trout 0.4 Willow Creek-below I-43 to Sheboygan Class 2 Brook Trout 1.6 River

Navigability Navigability determines whether a waterway is “public” or “private”. Navigable lakes and streams are “public” waterways, but “public” in this context means that it may only be used for hunting, fishing, swimming, or other recreational activities and permits are required for work in the waterway itself. Any member of the public can "use" a navigable waterway if they keep their feet wet. On lakes, if there is public access available or if a person receives permission from the landowner, the public can use the water surface. Contrary to common belief, there is usually no strip of public ownership adjacent to “public” waterways, and if the land along a navigable waterway is privately owned a person may be prosecuted for trespassing, if without permission, a person crosses the land to use the waterway. In general, the public must "keep their feet wet" except to portage around an obstruction using the shortest way possible.

Sheboygan County undertook a large-scale navigability study countywide. In 1997, the County Planning Department and the WDNR worked together to make determinations on the “navigability” of waterways in northern Sheboygan County. This was in order to create a comprehensive map establishing the jurisdictions of the County’s shoreland-floodplain ordinance. Navigability is defined by the Wisconsin Supreme Court as if a waterway has a bed and banks, and it is possible to float in a canoe or other small craft at some time during the spring freshets. In 1999, the Sheboygan County Planning Department and the WDNR determined the navigable waterways for the southern half of the County. The Sheboygan County Board then passed ordinances designating waterways as navigable, non-navigable, and agricultural. These designations establish the jurisdiction of the County’s ordinances. If the waterway is in the jurisdiction of the ordinance, certain setbacks from that waterway, as well as other regulations, are required. Designations are being updated on a continual basis and if property owners ask the County and WDNR to review a designation, a determination on the navigability of that waterway will take place. Map 2-9 shows the navigable waterways in Sheboygan County.

Groundwater Sheboygan County’s groundwater reserves are being held in three principal aquifers: the eastern dolomite aquifer, the sandstone and dolomite aquifer, and the sand and gravel aquifer.

The eastern dolomite aquifer occurs from Door County to the Wisconsin-Illinois border. It consists of Niagara dolomite underlain by Maquoketa shale. In areas where fractured dolomite bedrock occurs at or near the land surface, the groundwater in shallow portions of the western dolomite aquifer can easily become contaminated. Map 2-11 shows estimates of the depth to the water table. The depth to the water table is the distance from the land surface to the water table that the water must flow to reach the groundwater. Areas adjacent to Lake Michigan appear to have a higher water table, which would mean there may be a higher susceptibility of contamination to the groundwater. The majority of the County appears to have between 20 and

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[Map 2-10: Current Dams and Historic Dams]

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50 feet to reach the water table, while the area near the Sheboygan Marsh has only 0 to 20 feet to reach the water table. The Towns of Greenbush and Mitchell appear to have the largest area where the depth to the water table is greater than 50 feet. It is important to remember that these are all estimates and generalizations, this should not serve as substitute a for an in-depth study of the water table in the area, but as a starting place.

The sandstone and dolomite aquifer consists of layers of sandstone and dolomite bedrock that vary greatly in their water-yielding properties. In eastern Wisconsin, this aquifer lies below the eastern dolomite aquifer and the Maquoketa shale layer. These rock types dip slightly to the east, south, and west, away from north central Wisconsin, becoming much thicker and extending to greater depths below the land surface in the southern part of the state. In eastern Wisconsin, most users of substantial quantities of groundwater tap this deep aquifer to obtain a sufficient amount of water.

The sand and gravel aquifer covers most of Wisconsin. This aquifer layer was deposited by glacial ice and river floodplains between 10,000 and 1 million years ago. Many irrigated farmlands in southern and northwestern Wisconsin tap this aquifer. Because the tope of the sand and gravel aquifer is also the land surface, the groundwater it contains may easily become contaminated.

Groundwater is vulnerable and if it is not carefully monitored, managed, and protected it has the potential to be depleted or degraded. The increase of the use of groundwater and surface-water since 1979 is shown in Table 2-2. While much has been done to protect our groundwater supply, we increasingly face the question of how to improve groundwater quality. Wide-spread land-use activities have resulted in elevated concentrations of contaminants such as nitrates and pesticides throughout the state. Cleaning up groundwater after it is contaminated has proven difficult and expensive; therefore it is beneficial to prevent groundwater from becoming contaminated in the first place.

In Wisconsin, the primary sources of groundwater contamination are agricultural activities, municipal landfills, leaky underground storage tanks, abandoned hazardous waste sites, and hazardous/toxic spills. Septic tanks and land application of wastewater are also sources for possible contamination. The most common groundwater contaminant is nitrate-nitrogen, which comes from fertilizers, animal waste storage sites and feedlots, municipal and industrial wastewater and sludge disposal, refuse disposal areas, and leaking septic systems. According to the WDNR, there are seven solid waste landfills or disposal facilities still operating in the County. Thirty other solid waste landfills or disposal facilities have closed. Of the 30 sites, all but three of these sites were municipal or government landfills or disposal sites. Most municipalities closed their sites when the environmental risks became known and cost of operation became too high.

Groundwater commonly contains one or more naturally occurring chemicals, leached from soil or rocks by percolating water, in concentrations that exceed federal or state drinking water standards or otherwise impair its use. Sheboygan County has never tested all private wells in the County, but the UW-Extension has worked to test individual wells and in some cases entire municipalities since 1993. Since 1993, 1097 water samples have been tested for known contaminants. The results of these testings show that 83 percent of all samples had a trace (0

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[Map 2-11: Depth-to-Water-Table]

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parts per million (ppm) – 10 ppm) of nitrates-nitrites, which can be naturally occurring at levels less than 10 ppm. Another item that is tested is the coliform bacteria which was found to be present in 206 of the 1097 water samples or about 19 percent of the samples. Coliform bacteria do not usually cause disease, but their presence indicates that wastes may be contaminating the water and that disease causing organisms could be present. The presence of coliform bacteria may also mean there are some defects with the well that are easy to be viewed or other problems may required excavating around a well. Map 2-12 shows the nitrate levels of the wells that have been tested within Sheboygan County. Appendix 4 shows breakdown of the contaminants for the 1097 water samples that have been tested since the UW-Extension started the program.

Groundwater Recharge Groundwater recharge, along with water conservation, is the best and most economical remedy available to tackle dropping groundwater levels. It is difficult to decrease our dependence on water when it is viewed as an infinite resource. Even a little water conservation consciousness can go a long way. However, since water conservation is a difficult task that may take a generation or more to become an accustom practice; addressing groundwater recharge obstacles is a remedy that should be utilized now.

Groundwater recharge occurs naturally when rainfall and surface waters are transmitted to the aquifer. Most areas, unless composed of solid rock or covered by impervious surfaces, allow a certain percentage of total precipitation to reach the water table. However, some areas have greater infiltration levels than others. Areas that transmit a relatively greater volume of precipitation are often referred to as "critical" groundwater recharge areas. There has not been a formal study of the groundwater recharge in Sheboygan County, but one could be completed in the future if the County or its municipalities desire. There is a formula available that one can compute the average recharge. The formula for aquifer recharge per year is:

(Acres) x (annual precipitation) x (volume) x (Percolation percentage)

For Sheboygan County, the calculation would be:

328,723 x 34.1 x 27,000 x 0.1 = 30,265,526,610 gallons per year

The estimated groundwater use of 3,931,050,000 gallons per year is only 13% of the total recharge volume (30,265,526,610) that is replenishing the aquifer. This calculation is for the County as a whole, but this does not mean that only 13% of the total recharge volume is being used everywhere countywide. Some areas may be using less water than others.

If you look at Table 2-3, in 2005, 10.77 million gallons of groundwater were used per day, or 3,931,050,000 gallons were used per year. This means that Sheboygan County is only using 13 percent of the total recharge volume that is replenishing the aquifer. Sheboygan County has a much larger rate of recharge than what is being taken from the aquifer in a given time period.

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[Map 2-12: Nitrate-Nitrite Contamination in Private Wells]

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Table 2-3: Sheboygan County Water Use Sheboygan County Water Use by Year (millions of gallons per day) 1979 1985 1990 1995 2000 2005 Percent Change Surface-water use 12.27 13.85 13.85 15.13 16.01 14.17 15.5% Groundwater use 7.67 7.32 9.31 9.46 9.43 10.77 40.4% Total water use 19.94 21.17 23.16 24.59 25.44 24.94 25.1% Source: U.S. Geological Survey Water Use in Wisconsin reports for calendar years 1979, 1985, 1990, 2000, 2005.

The amount of water that infiltrates to the groundwater depends on vegetation cover, slope, soil composition, depth to the water table, the presence or absence of confining beds and other factors. Recharge is promoted by natural vegetation cover, flat topography, permeable soils that have not been compacted, a deep water table, and the absence of confining beds. Under the force of gravity, groundwater generally flows from high areas to low areas. Thus, high areas, such as hills or plateaus are likely to be the area where aquifers are recharged and low areas, such as wetlands or streams are where the water discharges. However, in many instances aquifers occur beneath streams or wetlands, so those areas can also be important recharge areas.

Water infiltration is severed in areas of urban development that create impervious surfaces such as parking lots, structures, compact soils, etc. Better land use decisions, particularly in critical groundwater recharge areas, could enable needed recharge to the aquifer as well as limit contamination. Making better land use decisions, even if they limit development, is more economical than tackling the expense of costly groundwater contamination and the search for alternate water supply sources.

There are two prominent types of wells in Sheboygan County: private and public. Private wells are wells that are not part of a public water supply, have fewer than 15 connections, and serve fewer than 25 people. They are usually wells that serve a single home or farmhouse. Wisconsin has had well and pump regulations since 1936. Private wells are regulated by the Private Water Supply Program of the WDNR under NR 812, The Well and Pump Code; and NR 146, The Well Driller and Pump Installer Licensing Code.

A public water system is a system for the provision to the public of piped water for human consumption, if such a system has at least 15 service connections or regularly serves an average of at least 25 individuals daily at least 60 days out of the year. A public water system can either be a community system, like a municipality, mobile home park or subdivision; or a non- community system, like a school, factory or wayside. The administrative code regulating public water systems varies, according to the type of public water system. The WDNR oversees construction and operation of public water systems to make sure everyone has safe water to drink and use. However, owners have primary responsibility to monitor drinking water quality. There are 202 public water supply systems in Sheboygan County. These systems include municipalities, churches, restaurants, golf courses, colleges, factories, camps, businesses and many other locations.

Shoreland Corridors Shorelands are the areas of interface between the land and water. In their natural state, these shorelands are comprised of thick and diverse vegetation that protects lakes, rivers, streams, and the natural scenic beauty, while providing fish and wildlife habitat. Shorelands are also viewed

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as valuable recreational and environmental resources both in urbanized and rural areas. As a result, the State of Wisconsin requires that counties adopt shoreland/floodplain zoning ordinances to address the problems associated with development in these areas. Cities and villages are also required to have shoreland-wetland ordinances, but they are not required to have waterway setbacks, minimum lot sizes, etc. in the shoreland zone, except for areas annexed after 1982. Development in shoreland areas is generally permitted, but specific design techniques as well as site details must be considered. Development in these areas is strictly regulated and in some instances, is not permitted.

The authority to enact and enforce the shoreland and shoreland-wetland ordinances and other zoning provisions in counties is set forth in Chapter 59.97 of the Wisconsin Statutes and Wisconsin Administrative Code NR 115. This same authority is also vested to cities and villages in Chapter 62.23 of the Wisconsin Statutes and NR 117. Sheboygan County’s Shoreland Ordinance is in Chapter 72 of the County Code of Ordinances. Sheboygan County’s Shoreland Ordinance regulates the unincorporated areas of the County that are within one thousand feet (1,000’) of the ordinary high water mark (OHWM) of navigable lakes, ponds, and flowages, within three hundred feet (300’) of the OHWM of navigable rivers, streams, and intermittent streams, or to the landward edge of the floodplain (whichever is greater). In addition to the aforementioned areas of shoreland and wetland jurisdiction, the Town of Wilson has granted Sheboygan County extra-territorial jurisdiction of all wetlands that are contiguous to shoreland- wetlands (those wetlands within the previously described shoreland boundaries) but extend beyond the one thousand foot (1,000’) shoreland boundary from the OHWM of navigable lakes, ponds, or flowages, the three-hundred foot (300’) shoreland boundary from navigable rivers, streams, and intermittent streams, or the landward edge of the floodplain.

Lakes, ponds, flowages, or waterways in Sheboygan County are presumed to be navigable if they are designated on the shoreland and wetland maps described in Sections 72.07 and 72.08 of the ordinance. If evidence to the contrary is presented (i.e. that they are navigable or that they are not navigable), the Planning Department shall make the determination whether or not the waters in question are navigable under the laws of Wisconsin. The Planning Department shall also make the determination of the location of the OHWM. The Planning Department may contact the Southeast District Headquarters of the DNR for assistance in the determination of navigability or the location of the OHWM. Map 2-13 illustrates the shoreland jurisdictions of Sheboygan County in the unincorporated areas.

Lake Michigan Coastal Features The Lake Michigan Coastal Features are important in many respects to Sheboygan County. These areas especially noteworthy for the rare regional endemic plants and animals associated with Lake Michigan shoreline habitats, and the highly specialized animals inhabiting the Niagara Escarpment. The coastal areas annually host significant concentrations of migratory birds, especially during the spring migration period. Wetlands near the coasts of Lake Michigan provide rich habitat for plants and animals and greatly influence the larger ecosystem processes of the Great Lakes Ecosystem. As transition zones (or ecotones) between land and water, coastal wetlands are often rich in species diversity and provide critical habitat for migratory and nesting birds, spawning fish, and rare plants. However, various types of development and recreation continue to impact coastal wetlands and limit their capacities to perform important ecosystem functions. Sheboygan County is thought to have one of the last undeveloped dune and wetland

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[Map 2-13: Shoreland Jurisdiction & Wetlands]

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complex along the western shore of Lake Michigan. This areas is identified as the Amsterdam Dunes. Sheboygan County is looking to acquire the 322.8 acre site from its current owners. More information on the project is located later in the Chapter.

Wetlands According to the Wisconsin Department of Natural Resources, wetlands are areas where water is at, near, or above the land surface long enough to be capable of supporting aquatic or hydrophitic vegetation and that have soils indicative of wet conditions. Other common names for wetlands are swamps, bogs, or marshes. Wetlands serve as a valuable natural resource. Not only do they provide aesthetic, recreational and educational opportunities in both urban and rural areas, they enhance water quality by absorbing excess nutrients into the roots, stems, and leaves of its plants and slow the flow of water to let suspended pollutants settle out. Map 2-13 also shows wetlands as mapped on the Wisconsin Wetland Inventory.

Wetlands act as natural pollution filters, making many lakes and streams cleaner and drinking water safer. They act as groundwater discharge areas and retain floodwaters. Filling or draining of wetlands is costly, destroys the productive capacity of the ecosystem and can adversely affect surface water quality and drainage. Finally, wetlands provide valuable and irreplaceable habitat for many plants and animals.

Because of their importance, there are strict regulations regarding wetlands. Wisconsin Administrative Codes NR 115 and NR 117 fall under the jurisdiction of the WDNR, and mandate that shoreland-wetlands be protected in both the rural and urban areas of the State. In the unincorporated areas, NR 115 provides the legislation to protect wetlands of five or more acres that are within the jurisdiction of county shoreland zoning ordinances. Wetlands not in the shoreland zone are protected from development by the federal government and the WDNR through Section 404 of the Clean Water Act, and NR 103, respectively. It ought to be noted that all wetlands, no matter how small, are subject to WDNR, and possibly, federal regulations, if they meet the State definition. Sheboygan County only regulates wetlands when they fall in the County’s shoreland or floodplain jurisdictions, except for those wetlands in the Town of Wilson that are contiguous to those that are located in the shoreland jurisdiction of the County. The villages and cities within the County have their own wetland ordinances, as applicable.

Floodplains Floodplains are often viewed as valuable recreational and environmental resources. These areas provide for stormwater retention, groundwater recharge, and habitat for various kinds of wildlife unique to the water.

Development permitted to take place in these areas is susceptible to storm damage and can have an adverse effect on water quality and wildlife habitat. In addition, it can also result in increased development and maintenance costs such as flood proofing, repairing repetitive damage of private structures and public infrastructure associated with flooding and high water, increased flood insurance premiums, and extensive site preparation. State Statutes require all communities to adopt a floodplain zoning ordinance if a flood hazard has been identified; the regulations apply to new construction as well as remodeling and the expansion of existing structures. For planning and regulatory purposes, the floodplain is normally defined as those areas, excluding the stream channel, that are subject to inundation by the Regional Flood event. This event has a

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one percent chance of occurring in any given year. Because of this chance of flooding, development in the floodplain should be discouraged, and the development of park and open space in these areas should be encouraged.

There are threats to the floodplains and the resource they represent. Some of these threats are filling, grading, impediments, and impervious surfaces. Filling may diminish the flood storage capacity of the floodplain. Grading can degrade the resource function of the floodplains. Impediments can be things like the encroachment of buildings or the construction of undersized culverts and bridge openings in the floodplain. Finally, impervious surfaces limit the ability of precipitation to penetrate into the ground meaning it can increase the velocity of the flood flows.

As a result of the problems that can be associated with development in a floodplain, the State of Wisconsin requires that counties, cities, and villages adopt floodplain zoning ordinances to address the problems associated with development in floodplain areas. The authority for floodplain management is given in Wisconsin Statutes 87.30 and NR 116. Chapter 73 of the Sheboygan County Code of Ordinances is the County’s Floodplain Ordinance. The boundary of the floodplain districts, including floodway, floodfringe, and other floodplain districts are designated as floodplains on the Flood Insurance Rate Maps (FIRMs) for Sheboygan County. These maps are prepared for Sheboygan County by the Federal Emergency Management Agency (FEMA) and are kept on file in the Sheboygan County Planning and Resources Department Office. The type of development that can occur depends if the property is in the floodway, floodfringe, or general floodplain district. The County regulates the unincorporated areas of the County, but individual incorporated municipalities regulate the floodplain within their own boundaries. Not all communities are mapped by FEMA because some communities do not have identified flood risks. For parcel specific information in the unincorporated areas of the County, the Planning and Resources Department shall be contacted. Map 2-14 shows a general overview of the Floodplain for Sheboygan County.

Woodlands Woodlands throughout Sheboygan County are comprised primarily of sugar maple, yellow birch, American beech, basswood, red oak, white oak, red pine, white pine, hemlock, paper birch, aspen, white cedar, shagbark hickory, ashes, elms, and small stands of the northern hardwood species. Also seen in Sheboygan County are balsam firs, white spruce, black spruce, and tamarack. The woodlands provide an aesthetic and natural purpose, providing habitat to many animals. The WDNR divides the State of Wisconsin into Ecological Landscapes. Sheboygan County is in two of these landscapes, the Southeast Glacial Plains Ecological Landscape and the Central Lake Michigan Ecological Landscape. Robert Finley mapped the original vegetation of the state. The original vegetation cover of Sheboygan County, based on that data, is shown on Map 2-15. According to that data, most of Sheboygan County was originally covered with deciduous forest, mainly beech, sugar maple, basswood, red oak, white oak, and black oak. There was a smattering of coniferous forests in the County as well. Landscaping with native species of woodlands has many appealing factors, such as savings on energy, as they do not need as much fertilizer or water and also provide habitat for wildlife.

According the U.S. Forest Service in 2006, Sheboygan County had 67,949 acres of forest, which made up 21 percent of the total land in the County. Of the 67,949 acres, 12,813 acres are publicly owned and 55,136 are privately owned forest lands. Sheboygan County does not have a County forest program. As of 2008, Sheboygan County had 9,620 acres of forest enrolled in the managed

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[Map 2-14: Floodplains]

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[Map 2-15: Original Vegetation Cover]

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forest law (MFL) program. The MFL program was enacted in 1985 and replaced the Forest Crop Law. These are both forest tax laws. The purpose of Wisconsin's forest tax laws is to encourage sustainable forestry on private lands by providing property tax incentives to landowners. This is accomplished with a binding agreement between the state Department of Natural Resources and private landowners. Sheboygan County had 1,485 acres of MFL open to the public in 2008, and a total of 9,620 acres of land enrolled in the MFL program. In order to be eligible for the program someone must have at least 10 acres of contiguous forest land, a minimum forest cover of 80 percent, an average width of 120 feet, and the landowner must submit a forest management plan and follow that plan. Lands remain in the MFL program for 25 or 50 years. These lands can be open to the public or closed, depending upon what the landowner chooses. MFL open lands are available for hunting, fishing, cross county skiing, hiking, and sightseeing. Lands that allow public access have to pay less in taxes.

According to the WDNR’s Summary of County Economic Sectors in 2003, the forest products and processing industry employed 3,284 people and had an industry output of $567 million dollars. Sheboygan County’s forest products and processing industrial output is 6 percent of the total county industrial output. In the State, for every ten jobs in forest related industries, an additional 23 jobs are produced in other sectors of the State’s economy.

The Kettle Moraine State Forest-Northern Unit is a mesic forest still in existence today. Part of the Kettle Moraine State Forest is located in western Sheboygan County. Map 2-16 shows the woodlands of Sheboygan County.

Kettle Moraine State Forest-Northern Unit The northern unit of the Kettle Moraine State Forest contains approximately 30,000 acres of state land, of which 67 percent are forested. It is an important area ecological in part because it is the largest block of contiguous forest in Wisconsin, east of the Baraboo range. As such the State Forest is important for "area sensitive" wildlife species including several Neotropical migrants, including the red-shouldered hawk and others classified as endangered and threatened species.

It is also a internationally significant area from a geological perspective, representing some unique geological features formed during the last ice age. Special interest areas include Dundee Mountain, the Henry S. Ruess Ice Age Visitor Center, the Ice Age Trail, Parnell Tower and Esker just to name a few.

Outdoor recreation and education are also important uses of this Forest. It is a regional significant area for hunting, including deer, waterfowl and small game hunting. Spruce Lake Bog and Jersey Flats prairie are also areas that are excellent for viewing wildlife. Wildlife species found throughout the forest include whitetail deer, turkeys, warblers, Cooper's hawks, red squirrels, meadowlarks, bluebirds and red-winged blackbirds. Camping, hiking, cross- country skiing, mountain biking and sight-seeing attract thousands of visitors every year.

Wildlife Habitat Fish and wildlife habitat areas have been delineated according to their level of quality and importance in many of the coastal areas of Sheboygan County as part of a 1976 Fish and Wildlife Habitat Study prepared by the WDNR. In this study, habitat areas were identified as being top, medium, or low quality areas, which measures the capability of supporting various types of wildlife habitat.

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[Map 2-16: Woodlands]

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The WDNR has developed an update to the 1976 study titled, “Wisconsin’s Strategy for Wildlife Species of Greatest Conservation Need”, also known as the Wildlife Action Plan. “Wisconsin’s Strategy for Wildlife Species of Greatest Conservation Need” identifies which native wildlife species, with low or declining populations, are most at risk of no longer being a viable part of Wisconsin’s fauna, what habitats they are associated with, where they occur across the state, and a menu of conservation actions to be developed into specific on-the-ground projects. The Wildlife Action Plan identifies the species of greatest need, the habitats they require, where they are located in Wisconsin, issues, threats, and conservation actions for the species, and identifies the opportunities

The Wildlife Action Plan classifies species within each ecological landscape as is and/or was significantly (highly) associated with the ecological landscape, restoration of this ecological landscape would significantly improve conditions for the species; moderately associated with the ecological landscape, restoration of this ecological landscape would moderately improve conditions for the species; minimally (low) associated with the ecological landscape, restoration of this ecological landscape would only improve conditions for the species. A listing of the species can be found in the Wildlife Action Plan for each ecological landscape. Some species that are highly associated with the Central Lake Michigan Coastal Ecological Landscape are the American Woodcock, Dunlin, Field Sparrow, Osprey, Upland Sandpiper, Lake Sturgeon, Four- toed Salamander, Northern Ribbon Snake, Mudpuppy, and many others. Some species that are highly associated with the Southeast Glacial Plains Ecological Landscape are the Acadian Flycatcher, Black Tern, Brown Thrasher, Buff-Breasted Sandpiper, Field Sparrow, Hooded Warbler, Red-headed Woodpecker, Western Meadowlark, Whooping Crane, Gravel Chub, Lake Sturgeon, Longear Sunfish, Blanding’s Turtle, Butler’s Garter Snake, Pickerel Frog, Franklin’s Ground Squirrel, and many others. These are just a few of the species, more detail can be found in the Plan.

A majority of the large remaining wooded and wetlands areas within the County were designated as Class 1 (most desirable) wildlife habitats by the Wisconsin Department of Natural Resources. Major wildlife species using these habitats include songbirds, deer, ruffed grouse, chipmunks, and squirrels. Other common species include coyote, gray fox, raccoon, skunk, and porcupine. Muskrat, mink, beaver, and otter have been identified in wetland areas. Several species of gulls, terns, geese, and ducks inhabit the area, and some of the old fields provide habitat for pheasants. Woodchuck, meadow vole, American toad, snapping turtle, Canada goose, and wild turkey can be found in places in the County. Sheboygan County lies within an important migratory corridor for songbirds, shorebirds, waterfowl, and raptors. These birds, possibly including some threatened or endangered species, use the wooded and wetland areas for food and rest.

The Wisconsin Department of Natural Resources has also designated the waters of Lake Michigan as Class 2 (desirable habitat) fish habitat. Fish species that may be found include small mouth bass, yellow perch, northern pike, rock bass, rainbow trout, lake trout, and brown trout. Sheboygan County is home to a diverse number of species and protecting these species and their habitat is important to the County.

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Threatened and Endangered Species Under the Endangered Species Act of 1973, an “endangered species” is any species that is in danger of extinction throughout all or a significant portion of its range (excluding species of the Class Insecta determined to be a pest whose protection under the provisions of this Act would present an overwhelming and overriding risk to humans). A “threatened species” is any species that is likely to become an endangered species within the near future throughout all or a significant portion of its range. The U.S. Fish & Wildlife Service in the Department of the Interior, and the NOAA Fisheries Service in the Department of Commerce, share responsibility for administration of the Endangered Species Act.

The Wisconsin Department of Natural Resources designates species as threatened or endangered for species that live within the borders of Wisconsin, regardless of how common they are in other states. In Wisconsin, threatened and endangered species are protected by the Wisconsin Department of Natural Resources under NR 27 of the Wisconsin Administrative Code. This law regulates the sale, transport, taking and possession of state endangered and threatened plant and animal species.

Both federal and state identification efforts for threatened and endangered resources were conducted as part of a WDNR review of the Ice Age Trail project area in Sheboygan County which showed many occurrences of rare species and natural communities recorded in the WI Natural Heritage Inventory (NHI). Sheboygan County has both aquatic occurrences and terrestrial occurrences. All Towns in the County are listed as having at least one occurrence, but the Towns of Russell, Rhine, Holland, Wilson, and Sheboygan have occurrences throughout the towns. A listing of these rare species and natural communities can be found in the Natural Areas and Critical Resources Plan, as well as in Appendix 5: Wisconsin Natural Heritage Inventory (NHI). The piping plover is listed as a federal endangered species, the dune thistle is listed as a federally threatened species, as well as the prairie white-fringed orchid.

Invasive Species Many invasive exotic plants and animals have devastating impacts on our native plant communities, fish and wildlife habitat, agricultural yields, recreational opportunities, and ultimately, local economies. Because these non-native species disperse widely across the landscape, it is advantageous to work cooperatively across jurisdictional boundaries towards prevention, management and control objectives. In addition, the number of new invasive species introduced into our region each year has been out-pacing control activities, making prevention and management tasks impractical for any one agency to manage alone. The cost to the U.S. economy to monitor, contain, and control theses species is estimated at $100 to 200 billion per year. Landscaping with native species provides habitat and has reduced maintenance costs, while slowing the spread of invasive species.

The Southeastern Wisconsin Invasive Species Cooperative (SEWISC) is a broad-based coalition that promotes efficient and effective management of invasive species throughout an eight-county region, including Sheboygan County. The mission of SEWISC is to educate the public and protect biodiversity and ecological function throughout this region, contributing to a high quality of life for present and future generations. SEWISC provides a forum to share information and resources, and to cooperatively execute invasive species management activities in southeastern Wisconsin. Over 75 percent of respondents to the County Comprehensive Planning Survey stated

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that invasive and exotic species represent are a threat to the quality of Lake Michigan and the coastal features adjacent to the Lake. Invasive species also pose a threat to other wildlife habitats. Some invasive species include the zebra mussel, purple loosestrife, Eurasian water milfoil, phragmites, and the Japanese knotweed. Sheboygan County also is in the quarantine area for the Emerald Ash Borer. The Emerald ash borer an invasive, wood-boring beetle that attacks ash trees, was positively identified for the first time in Wisconsin in August 2008. The beetle and beetle larvae were found at a private home in Ozaukee County, Wisconsin. Sheboygan County has developed a team to help develop a plan that will address how Sheboygan County will prepare for the Emerald Ash Borer. This committee is in the beginning stages of identifying how many ash trees are located within Sheboygan County. Phragmites are a wetland plant species found in every U.S. state. It can grow up to 6 meters high in dense stands and is long-lived and is a problem in Sheboygan County. Japanese knotweed spreads quickly to form dense thickets that exclude native species and are of little value to wildlife, leading to it being described as an environmental weed. This plant grows to shade out vegetation as well as when it dies, it leaves stream and river banks more vulnerable to erosion.

Significant Natural Features Sheboygan & Kiel Marshes located in northwestern Sheboygan County are important wetland areas for wildlife, flood control, and other wetland functions. The properties are used for outdoor recreation activities, including fishing, hunting & trapping. The Sheboygan Marsh Park provides an outdoor classroom for the Sheboygan Outdoor Skills Center. The following website provides more information on the Broughton Sheboygan Marsh Park and Wildlife Area http://www.co.sheboygan.wi.us/html/d_planning_broughtonmarsh.htm, as well as a copy of the strategic plan for the Sheboygan Marsh.

John Michael Kohler State Park and Terry Andrae State Park are heavily used parks that preserve almost two miles of Lake Michigan shoreline, including uplands and wetlands associated with the lake and Black River. These parks are managed as one unit by the Wisconsin DNR. The area is known for its wonderful sand beaches and stabilized sand dunes, interdunal wetlands, river marsh, dune thistle, sand reed grass, migrating birds, phyllira tiger moth, seaside grasshopper, and several types of forest. The park and surrounding areas are ecologically vital and have high recreational value. Kohler-Andrae has been identified as a WDNR Land Legacy site and a Priority Conservation Site by Glacial Lakes Conservancy. For more information on these parks please see Chapter 6, Utilities and Community Facilities. The Kohler Park Dunes located within the state parks has three uncommon Great Lakes shore habitats present in this area: Lake Michigan dunes consisting of large, active potions surrounded by stabilizing dunes; one quarter mile of beach community; and two small remnants of white pine forest. The area is rich in coastal plant species and there are numerous critical plant species present.

Nichols Creek is located in the Towns of Sherman and Lyndon, and has been designated as a State Exceptional Water Resource. Wisconsin’s Outstanding and Exceptional Resource Waters Program is designed to maintain the water quality in Wisconsin’s cleanest waters. An exceptional resource water is defined as a stream that exhibits the same high quality resource values as outstanding waters, but which may be impacted by point source pollution or has the potential for future discharge from a small sewer community. The Nichols Creek State Wildlife Area, which makes up the headwaters of Nichols Creek which drains into the North Branch of the Milwaukee River, is located in the Towns of Lyndon and Mitchell.

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North Branch Milwaukee River Wildlife and Farming Heritage Area includes portions of Sheboygan, Ozaukee, and Washington Counties and encompasses a total of 19,487 acres of land. The core area is made up of 16,549 acres of land with an additional 2,938 acres made of corridors along the five tributary streams in the area. The project includes river and stream corridors, large wetland complexes, three lakes, and rural/agricultural lands and is one of the largest blocks of open space remaining in southeastern Wisconsin where agriculture is the dominant land use. The purpose of the project is to:

¾ Maintain the rural character of the area ¾ Maintain and enhance existing natural resources ¾ Restore plant communities and wetlands to improve wildlife habitat and water quality ¾ Provide nature-based outdoor recreation and education opportunities

Nearly 9,100 acres of cropland and pasture areas, 5,900 acres of wetlands, and 700 acres of forest occur within the boundary area. In an effort to achieve the goals outlined for the North Branch Milwaukee River watershed and project area, the Wisconsin DNR, Ozaukee Washington Land Trust, and Glacial Lakes Conservancy are using a variety of real estate tools, including fee title, donated conservation easements, and purchase of development rights (PDR) in this three county area with willing landowners to protect agricultural lands, wetlands, forests, natural resources, and the surface water quality of streams, the Milwaukee River, and ultimately Lake Michigan.

Sheboygan County Memorial Arboretum in Sheboygan County is a wet lacustrine swamp that is made up primarily of black ash and American elm with alder in the under story. The tree canopy is somewhat open and there are many plant species throughout the swamp and there is little local relief. Trails run along the east and west fringes of the swamp.

Amsterdam Dunes Project may be the last large tract of undeveloped sand dune and wetland complex along the western shore of Lake Michigan, in the Town of Holland. Sheboygan County is looking to acquire the 322.8 acre site from its current owners. This project will look to restore wetlands and forests, create additional critical habitats, restore and improve waterways, prevent erosion and sedimentation, prevent movement of nutrients and pesticides into wildlife habitat, develop the site for limited public access and outdoor recreation, create innovative educational media that highlights the unique ecological and built environments of the site, create jobs, and create partnerships with other agencies and citizens for long-term preservation. In 2009, the County applied for a grant from the National Oceanic and Atmospheric Administration (NOAA). This would include funding for acquisition, restoration, and development. The restoration will benefit rare species and habitats, as well as providing educational opportunities. Humans will benefit through environmental education and recreational opportunities.

The Wisconsin State Natural Area program was established to formally designate sites in natural or near natural condition for scientific research, the teaching of conservation biology, and most of all, preservation of their natural values and genetic diversity for the future. These areas are not intended for intensive recreation use, but rather to serve the mission of the Natural Areas Program, to locate and preserve a system of State Natural Aras harboring all types of biotic communities, rare species, and other significant natural features native to Wisconsin.

There are some other significant natural areas that are labeled State Natural Areas (SNA). These are listed in Table 2-4. These areas include a wetland, bog, kame, a hawk research station and

2-51 Sheboygan County Comprehensive Plan Adopted many others. More information on these State Natural Areas can be found in Sheboygan County’s Outdoor Recreation and Open Space Plan-2007 and the Natural Areas and Critical Resources Plan.

Table 2-4: State Natural Areas within Sheboygan County Name (Identification) Location with Sheboygan County Cedar Grove Hawk Research Station (State Natural Area #8) Section 30-Town of Holland East Kohler Park Dunes (State Natural Area #71) Sections 22 & 23-Town of Wilson Kettle Hole Woods (State Natural Area #254) Section 18-Town of Scott Crooked Lake Wetlands (State Natural Area #255) Sections 6 & 31-Town of Scott Butler Lake Flynn’s Spring (State Natural Area #257) Section 20-Town of Mitchell Johnson Hill Kame (State Natural Area #258) Section 8-Town of Mitchell Kettle Moraine Red Oaks (State Natural Area #259) Section 14-Town of Scott Rhine Center Bog (State Natural Area #414) Section 11-Town of Rhine Source: Wisconsin Department of Natural Resources

Land Legacy Places Starting in 1999, the Wisconsin DNR initiated a three-year study to identify, with considerable input from the public and non-profit groups, places in the state that will be critical in meeting Wisconsin’s long-term conservation and recreation needs. The resulting 229 “Legacy Places” collectively are the special places that “make Wisconsin, Wisconsin.” The WDNR only represents the Legacy Places as points because specifically identifying which lands and waters associated with each place are most appropriate to maintain and protect is most appropriately left to a locally-focused planning process. The Land Legacy information helps to bring cultural and environmental meaning to the demographic data that we present. There are seven land legacy places within Sheboygan County. These seven lands are identified in Table 2-5.

Table 2-5: State Land Legacy Places in Sheboygan County Land Legacy Place Location Kettle Moraine State Forest Towns of Greenbush, Mitchell, and Scott Kohler-Andrae Dunes Town of Wilson Millhome Woods Town of Rhine Milwaukee River Towns of Scott and Sherman Onion River Grasslands Town of Lima Sheboygan County Trout Streams Various locations see Page 23 for more information Sheboygan River Marshes Towns of Greenbush and Russell Source: Wisconsin Department of Natural Resources

Environmental Corridors Environmental corridors serve many purposes. They protect local water quality and wildlife habitat through identification and preservation of environmentally sensitive areas. They can be used as a means of controlling, moderating, and storing floodwaters while providing nutrient and sediment filtration. Environmental corridors can provide fish and wildlife habitat, recreational opportunities, and serve as buffers between land uses, while improving the aesthetics of the community. The environmental corridor process is also used as part of the planning process for making planning and zoning decisions at the local level.

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The concept of a corridor is based on the delineation of environmental features adjacent to waterways and water-related resources. Bay-Lake Regional Planning Commission, which Sheboygan County is a part of, has defined environmental corridors to include the following set of uniformly available information: Wisconsin Department of Natural Resources wetlands; Federal Emergency Management Agency’s 100-year floodplains; areas with slopes greater than or equal to 12 percent; lakes, rivers, streams and ponds; a 75-foot lake and river setback; and, a 50-foot buffer of wetlands. Many of the commission’s planning activities require delineation of environmental corridors (comprehensive plans, watershed plans, sewer service area plans, etc.).

Other features that are considered as part of the environmental corridor definition on an area-by- area basis include: designated scientific and natural areas; unique and isolated woodland areas; scenic viewsheds; historic and archaeological sites; unique geology; wetland mitigation sites; isolated wooded areas; unique wildlife habitats; parks and recreation areas; and other locally identified features. The Bay-Lake Regional Planning Commission (BLRPC) has defined environmental corridors for Sheboygan County to help in identifying areas that have the greatest need for protection. Some of these areas are discussed in the Sheboygan County Outdoor Recreation and Open Space Plan-2007. These corridors were delineated using BLRPC’s Geographic Information System (GIS) to overlay a variety of features. These corridors are shown in Map 2-17. It is important to maintain important connections for environmental corridors, so these corridors are not fragmented.

Parks and Open Space Sheboygan County has an abundance of diverse outdoor recreational facilities and opportunities, for all ages and seasons. The County owns a few parks and open space areas. These areas will be discussed below, but a greater discussion and maps of all the parks and open spaces throughout the County can be found in Sheboygan County’s Outdoor Recreation and Open Space Plan- 2007, as well as the City of Sheboygan’s Outdoor Park, Recreation, and Open Space Plan. Individual municipalities will also have better descriptions of their own parks and open space areas. Below will be an overview of the County-owned parks and recreation areas.

Broughton Sheboygan Marsh Park In 1937, 6,349 acres of land consisting of wild, undeveloped open space and surface water was purchased by Sheboygan County at a public foreclosure auction. Today, this property is the principle area of the Broughton Sheboygan Marsh Park and Wildlife Area. The Park was named after civic leader and conservationist, Charles E. Broughton, who had worked to restore the Marsh after attempts were made to drain the area for farmland.

In 1938, a permanent dam was constructed; the area was reflooded and once again restored to an excellent habitat for waterfowl and a diversity of other game and non-game species. Numerous other individual parcels of land have been acquired by and donated to the County and the State of Wisconsin throughout the years since the initial acquisition.

Thirty acres of land were set aside for construction of a developed park and campground area currently includes the following recreational facilities and opportunities:

¾ Family restaurant and bar (managed by a private vendor) ¾ Meeting and special events building

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[Map 2-17: Environmental Corridors]

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¾ Sixty-four (64) fully developed campsites at three camping areas ¾ Large picnic area ¾ Large playground ¾ Canoe and boat rentals (with 674 acres of available surface water) ¾ Boat launch ramp ¾ Fishing piers ¾ Snowmobile trails ¾ Access to 14,000 acres of land and water for hunting, fishing, canoeing/boating, cross- country skiing, hiking, and nature study ¾ Part of the Ice Age National Scientific Reserve ¾ Delineated archaeological sites

The Marsh itself (not including the developed park area) is managed through a cooperative agreement with the Wisconsin Department of Natural Resources following the Sheboygan Marsh Strategic Management Plan that was updated in 2002. There are scheduled to be some improvements to the Marsh Park in the years ahead. This includes the construction of an 80-foot observation tower on the property.

Gerber Lakes Public Fish & Wildlife Area Sheboygan County's newest public lands, this Fish & Wildlife Area is open to the public for multiple outdoor recreation uses. The Wildlife Area is located in Section 35, Town of Rhine, 3 miles east of Elkhart Lake and is open to public hunting and fishing during these seasons.

The property includes 3 lakes, 2 of which are among the most popular fishing and canoeing lakes in the area. Big Gerber Lake is 15 acres and has a maximum depth of 37 feet, Little Gerber Lake is 8 acres with a maximum depth of 21 feet, and Bullet Lake, which is approximately one acre in size. Big Gerber and Little Gerber Lake are connected by a short, navigable channel; both lakes have restrictions on motorized watercraft.

The land cover on the property is diverse, consisting of tillable uplands, deciduous trees (principally maple, beech, oak, ash, birch, and aspen), coniferous forest (principally pine, spruce, and tamarack), meadow, and wetland. The topography of the property ranges from rugged steep slopes greater than 25% on the western and southern portions of the property, and gently rolling along the areas adjacent to the lakes. The southern portion of the property is in the process of being restored to a native prairie. This restoration project was complete following the planting of prairie vegetation in spring 2005. A barn on the site was removed in summer 2005. Removal of the barn structure enhances the overall wildlife experience on the property.

The lakes on this property are within the headwaters of the Otter Creek tributary. The lakes include one of the region’s most productive warm water fisheries, with the principal species being largemouth bass, bluegill, and black crappie. Game and non-game animal species commonly found on the property include whitetail deer, red and grey fox, raccoon, skunk, cottontail rabbit, squirrels, various mice, voles, and moles, wild turkeys, herons, red tailed hawks, barred and great horned owls, migratory waterfowl (such as mallard, wood duck, greenwing and bluewing teal, Canada geese), songbirds, pheasant, and Hungarian partridge.

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Natural Resource Organizations in Sheboygan County Sheboygan County has a wide variety of organizations that strive to protect and enhance the County’s natural resource base. These include local chapters of national organizations, local conservation organizations, and many friends organizations.

Sheboygan County Conservation Association Many of the County’s conservation organizations have joined together to form the Sheboygan County Conservation Association (SCCA), which is a nonprofit organization. In 1957, a few conservation minded groups incorporated and formed the SCCA. Now, 50 years later, the group consists of 33 conservation clubs, about 3,000 members strong. This group meets monthly, and has become a strong force in conservation efforts in the County. The SCCA is recognized state- wide for its multitude of programs and improvement of Wisconsin's great outdoors. To date, over $850,000 has been raised for conservation efforts and projects. This organization supports a Pheasant Program, supports Trees for Tomorrow, and provides an annual scholarship. Since 1996, The SCCA’s Pheasant Program raises a more wild strain of bird in hopes of establishing a sustaining pheasant population. The SCCA also acquires land, sometimes keeping ownership of the land, but most of the time the land is donated to the Wisconsin DNR, conservation organizations with in the SCCA, or other government agencies. In 2005, they purchased a 154 acre parcel of land for public use. The SCCA also acquired land in 2006. Table 2-6 is a listing of the 33 conservation organization that makeup the SCCA. Most of these member organizations have yearly or monthly dues, and have their own monthly meetings. These organizations also are involved in their own conservation activities along with those of the SCCA. Some of these organizations acquire their own lands.

Table 2-6: Sheboygan County Conservation Association Member Clubs Adell Sportsmen Club Rhine Field & Stream Binversie’s Sportsmen Club Ridge Runners Sportsmen Club Cascade Sportsmen Club, Inc. Riverside Hunting & Fishing Club Crystal Lake Sportsmen Club Sauk Trail Conservation Club Farmers and Sportsmen Conservation Sheboygan Falls Conservation Club Club Great Lakes Sport Fisherman Sheboygan Rifle & Pistol Club (Sheboygan Chapter) Hermitage Conservation Club Sheboygan Riverside Boat Club Howards Grove Rod & Gun Sheboygan Walleye Club Hunters Education Conservation Club Smerke’s Sportsmen Club Izaak Walton League (Sheboygan Suscha Fale Sportsmen Club Chapter) Johnsonville Rod & Gun Tri-County Sportswomen Club, LLC. Kettle Moraine Bass Anglers Trout Unlimited Koenig’s Conservation Club UAW 833 Conservation Committee Marshview Conservation Club Whitetail Bowhunters Muskie’s Inc. Winooski Bowman Northern Kettles Chapter of NWTF Wisconsin Trappers Association – District 8 Peterman’s Hunting & Fishing Club Source: Sheboygan County Conservation Association.

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Glacial Lakes Conservancy Glacial Lakes Conservancy is a private, non-profit, land trust conservation organization dedicated to preserving and protecting working, urban, and natural lands that contribute significantly to the ecological integrity, agricultural sustainability, scenic beauty and recreational enjoyment in Sheboygan, Manitowoc, Kewaunee, Calumet and Fond du Lac counties. Glacial Lakes envisions a legacy of permanently protected lands and land-use policies that sustain and enhance a regional quality of life defined by the beauty and productivity of its working lands and natural resources and is supported by memberships and contributions from those who share in this vision. The Conservancy achieves its goals at this time primarily through the use of donated conservation easements, advocating for resource protection, and entering into project partnerships. GLC is part of the Lake Michigan Shorelands Alliance, a collaboration of 9 land trusts within the Lake Michigan watershed basin.

Sheboygan River Basin Partnership The Sheboygan River Basin Partnership (SRBP) is a non-profit organization working to improve water quality and preserve our natural resources within the Sheboygan River Basin. Improving the health of our rivers and lakes is our goal. The SRBP is an alliance of conservation and environmental groups; local businesses; local, state and federal agency staff, and concerned individuals. Together, we are working to cultivate partnerships to raise public awareness, engage participation in stewardship, and promote informed decision-making regarding issues that affect the health of water resources in our area.

Friends of the Sheboygan Marsh The Friends of the Sheboygan Marsh is a non-profit organization that has a mission allowing this and future generations to learn about nature and the environment, and to enjoy the rich beauty the Broughton Marsh Park has to offer. The Friends of the Marsh have worked to raise funds to build a tower. This tower will be the largest structure of its kind in Wisconsin and will be a great asset to the Marsh. The tower itself will be a tourist destination, drawing families wishing to enjoy the park without getting their feet wet or venturing into the wilderness areas that can instead be seen from the tower.

Friends of Kettle Moraine State Forest The Friends of the Kettle Moraine is a non-profit organization dedicated to promoting a greater appreciation of the Kettle Moraine. The Friends of the Kettle Moraine involve the public in their activities and the Northern Unit of the Kettle Moraine State Forest. Anyone can become a member. The Friends of the Kettle Moraine helps in planning and staffing special activities in the forest such as cross-country ski outings, hikes, seminars and many other activities. The Friends of the Kettle Moraine hold regular meetings at the Ice Age Visitor Center (located on State Highway 67, 1/2 mile west of Dundee).

Friends of Kohler-Andrae State Park The Friends of Kohler-Andrae State Park is a non-profit support organization dedicated to assisting the Department of Natural Resources at the park. Members are committed to furthering the historical, educational, recreational, interpretive and visitor services programs of the park. The Friends of Kohler-Andrae State Park organization was established in 1987. It continues the park's historical and vital link in joining private and state efforts toward our common goal of improving and sustaining the park.

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The Environmental Park Trust of Sheboygan County The Environmental Park Trust of Sheboygan County supports Maywood through private donations, grants, bequests, and annual fund raising events. This trust and its donors made the 5,600 square foot Wm. A. Hayssen Pavilion - Ecology Center Addition, a multi-purpose facility addition, a reality.

Sheboygan County Audubon Society Audubon's mission is to conserve and restore natural ecosystems, focusing on birds, other wildlife, and their habitats for the benefit of humanity and the earth's biological diversity. It is made up of a national network of community-based nature centers and chapters, scientific and educational programs, and advocacy on behalf of areas sustaining important bird populations, engage millions of people of all ages and backgrounds in positive conservation experiences. Sheboygan County has a local chapter of the Audubon Society.

Pheasants Forever Another conservation organization in Sheboygan County is the Pheasants Forever organization. It is a national organization with a Sheboygan/Manitowoc Chapter. The organization meets in Plymouth one month and then Valders the following month. Pheasants Forever is dedicated to the conservation of pheasants, quail and other wildlife through habitat improvements, public awareness, education and land management policies and programs. This chapter is responsible to determine how 100% of their locally raised funds will be spent.

Master Gardeners Master Gardeners are individuals who have an interest in horticulture, have taken Master Gardener training offered by UW-Extension and share their time and expertise with others. It is the acquisition of knowledge, the skill in gardening, and giving back to the community that distinguishes UW-Extension Master Gardeners from other gardeners. The purpose of the Wisconsin Master Gardener Program is to provide unbiased, research-based horticultural information to the citizens of Wisconsin through Master Gardener volunteers. Master Gardeners receive training in horticulture through the University of Wisconsin Extension. In return for their training, Master Gardeners volunteer in UW-Extension horticulture programs and projects which enhance the community.

Wild Ones Wild Ones: Native Plants, Natural Landscapes promotes environmentally sound landscaping practices to preserve biodiversity through the preservation, restoration and establishment of native plant communities. Wild Ones is a not-for-profit environmental education and advocacy organization. The Sheboygan Area Tension Zone Chapter of Wild Ones suspended it operations for 2009, but may become active again in the coming years.

Nature Conservancy The Nature Conservancy is a leading conservation organization working around the world to protect ecologically important lands and waters for nature and people. The Nature Conservancy recently created a new GIS Mapping Tool developed for the Sheboygan River Basin. This took includes which basin-wide priority maps for terrestrial, wetland and aquatic resources.

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AGRICULTURAL RESOURCES Agriculture in the State of Wisconsin has long been a significant, but an increasingly smaller segment of the statewide economy. Agriculture for purposes of this plan include the land used for farming, dairying, pasturage, apiculture, aquaculture, working forest lands, orchards, horticulture, floriculture, viticulture, or animal and poultry husbandry; this includes the necessary accessory uses for packing, treating, or storing the produce from these activities. In 2002, there were 77,131 farms in the State and that number increased to 78,463, at the same time the statewide average size of farms has decreased and the number of acres of land in farms has also decreased. As growth continues to occur, it is important to protect the productive farmland. Over a half million acres of farmland has been lost from 2002 to 2007. Sheboygan County has recognized the need to protect farmland and prepare for the future, by developing a Farmland Preservation Plan in 2004, Sheboygan County and its municipalities took a step in protecting the resource for generations to come. All of the County’s towns are included in the farmland preservation plan and the Village of Glenbeulah, all other municipalities did not enter into the farmland preservation plan. Since 2000, the WDNR has acquired 1,438 acres of total land within Sheboygan County. They have also acquired easements and development rights on an additional 643 acres of land. As of summer 2009, the Glacial Lakes Conservancy had about 490 acres in conservation easements in Sheboygan County. It is difficult to know the exact number of acres that have been taken out of farmland production, due to WDNR purchases, but it is estimated that less than 1,000 acres have been taken out of farm production. By comparison, between 2002 and 2007 over 3,500 acres of farmland have been lost in Sheboygan County, according to the U.S. Agricultural Census; this means that the WDNR purchases are only a small part of the total farmland loss the County is experiencing. The U.S. Fish and Wildlife Service has also acquired about 203 acres from 2003 to 2009, most of this land is no longer farmed.

Prime Agricultural Lands The USDA, Natural Resources Conservation Service defines prime farmland as land that has the best combination of physical and chemical characteristics for producing food, feed, fiber, forage, oilseed, and other agricultural crops, with minimum inputs of fuel, fertilizer, pesticides, and labor, and without intolerable soil erosion. Prime farmland includes land that is being used currently to produce livestock and timber. It does not include land already committed to urban development or water storage. It is important to note that these soils characteristics are only one of many variables that contribute to a viable farming operation; agricultural land is not only tillable land but can also include but are not limited to beekeeping, fish or fur farming, orchards, plant greenhouses and nurseries, poultry raising, raising of grain, grass mint and seed crops, raising of fruits, nuts and berries, and sod farming.

Prime farmland is land that has the best combination of physical and chemical characteristics for producing food, feed, forage, fiber, and oilseed crops. The land must also be available for these uses (cropland, pastureland, forestland, or other land, but not water or urban built up land).

Prime farmland has the soil quality, growing season, and moisture supply needed to economically produce sustained high yields of crops when treated and managed, including water management, according to acceptable farming methods.

In general, prime farmland in Wisconsin:

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¾ Has an adequate and dependable water supply from precipitation or irrigation ¾ Has a favorable temperature and growing season ¾ Has acceptable acidity or alkalinity ¾ Has few or no rocks ¾ Is permeable to air and water ¾ Is not excessively erodible ¾ Is not saturated with water for long periods of time ¾ Does not flood frequently, or is protected from flooding

Conservation Reserve Program (CRP) The USDA administers the Conservation Reserve Program (CRP) to help provide water quality protection, erosion control, and wildlife habitat in agricultural areas. Under the CRP, the landowner enters into an agreement to restore or protect lands for a 10-year or longer period in return for cash payments or assistance in making conservation improvements.

Working Lands Initiative Purchase of Development Rights (PDR) and Purchase of Agricultural Conservation Easements (PACE) PDR or PACE programs are growing as an important tool in protecting important farmland and the right to farm for generations to come, which uses a legal agreement called a conservation easement. A conservation easement is a voluntary legal agreement between a landowner and a private land trust/qualified conservation organization or government entity, which limits current and future uses of the land in order to protect specific ecological, scenic, recreational, historic, agricultural, or forestry values that provide long-term public benefits. Commonly, agricultural easements remove most, if not all, development rights from the land and prohibit future uses that would interfere with a viable agricultural enterprise. They are written to include a land management plan and the protection of natural resources on the property. PDR programs are a growing trend in Wisconsin, and a primary goal of the Wisconsin Working Lands Initiative, that directly compensates landowners for their participation. Another variation, Agricultural Conservation Easements, may be donated rather than sold (or both partially donated and compensated) with certain tax implications that may benefit the landowner, such as federal income tax incentives, estate taxes, and possibly property taxes. Easements are individually crafted to reflect the landowner and easement holder’s goals. Since an easement is legally recorded and attached to the deed, future owners are bound by its terms in perpetuity. The conservation organization or government body that holds the easement monitors and enforces its terms to ensure compliance. Private lands protected by conservation easements stay on the tax rolls and remain privately owned and managed.

Agriculture Enterprise Areas (AEA) Agricultural Enterprise Areas are a way to voluntarily identify and protect critical areas of working lands. These programs: • Encourage farmers and local governments to invest in agriculture, • Establish large areas of contiguous land primarily in agricultural use; reduce land use conflicts, • Increase income tax credits for program participants, and • Ensure compliance with state soil and water conservation standards,

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The program is aimed at protecting viable and productive working lands including agricultural and forested land, by creating these AEA.

Land Evaluation-Site Assessment Tool (LESA) In 2004, the County Planning & Resources Department worked with a private consultant, EarthTech, to develop an individualized Land Evaluation-Site Assessment Tool for farmland in Sheboygan County. The LESA was developed by the Natural Resources Conservation Service (previously known as the Soil Conservation Service) in the 1980s as a tool for local governments to rate the agricultural lands in their community for use when making land use decisions. Sheboygan County used the model developed by the NRCS and the results from a similar exercise conducted by Saint Croix County to develop its own LESA.

The LESA has two components, a Land Evaluation component and a Site Assessment component. Only the Land Evaluation component is in a form that can easily be used; the Site Assessment tool needs additional modification before its usefulness can truly be utilized. The Land Evaluation component was developed for Sheboygan County’s Farmland Preservation Plan-2005.

The Land Evaluation (LE) component uses three criteria for developing a score for the land in relation to its agricultural use. The score is parcel-based and uses the NRCS soil data that Sheboygan County has in digital format. Because of the digital nature of the datasets that were used in this process, it was easy to filter the information through a Geographic Information System (GIS) to conduct the analysis. The three criteria that were used for the LE scores were Prime Farmland Class Index, Land Capability Class Index-Improved Condition Index, and the Productivity Index. Included in the LE score is a weighting factor that was applied to each of the three criteria to reflect their importance in the overall score as follows:

¾ Prime Farmland- 15% ¾ Capability Class- 30% ¾ Productivity Index- 55%

To calculate the LE score, the three criteria are weighted for the soils on a parcel and the LE score for each parcel ranges from 0 to 100.

Map 2-18 shows the Land Evaluation Score for the entire County. The second component of the LESA is the Site Assessment (SA) tool. The SA factors take into account socio-economic factors such as contiguous ownership, adjacent land use, land use policy, distance to public sewer, and the proximity to roads and the classification of the nearest road. This component is much more subjective and requires significant input from the local communities and stakeholder groups to assign values and weighting factors to each of the criteria. The SA for Sheboygan County is still preliminary and a technical committee will need to be formed to finalize the scores. For more information on the development of the LE scores see Appendix 6.

Farm Size and Numbers According to the 2002 Census of Agriculture, there were 1,116 operating farms in Sheboygan County, of which 230 were dairy farms. The Census of Agriculture defines a farm as anything that sells over $1,000 of commodities in a year. Over 80 percent of farms in Sheboygan County

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[Map 2-18: Farmland Agricultural Suitability Land Evaluation Score]

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are between 10 and 500 acres. Table 2-6 shows the breakdown of farm size. Only a little over 2 percent of all farms in the County were over 1,000 acres in 2002. There were only 15 farms over 1,000 acres in the 1997 Census of Agriculture. Besides dairy farms there are also beef, poultry, hogs and pigs, sheep and lamb, mink, vegetable, fruit, crops, and many other types of farms in Sheboygan County.

The Agriculture Census found that there was 195,248 acres in farms in 2002, with the average size of the farm being 175 acres. The average farm size in the State was 203 acres in 2006. This means that Sheboygan County’s farms on average are slightly smaller than the average for the State. According to the 2008 assessments for the municipalities in Sheboygan County, there was 165,149 acres of land assessed as agricultural lands (See Table 2-7). This land had a value of over $27,000,000. The 165,149 acres of land assessed as agricultural seems to support the trend of a decline in agricultural lands. The Town of Holland has the largest number of assessed acres in agriculture. It is important to remember that assessed agriculture is different than the number of acres in the farm. Some land could be included in farm size, but be assessed as a different type of land.

Table 2-5: Farm Size, 2002

Farm Size* Number of Farms Percent of Total 1 to 9 acres 117 10.5% 10 to 49 acres 340 30.5% 50 to 179 acres 320 28.7% 180 to 499 acres 246 22.0% 500 to 999 acres 67 6.0% 1,000 acres or more 26 2.3% Total 1,116 100% Source: U.S. Agricultural Census, 2002 * Farms by size is defined as all farms classified into size groups according to the total land area in the farm. The land area of a farm is an operating unit concept and includes land owned and operated as well as land rented from others. Land rented to or assigned to a tenant was considered part of the tenant’s farm and not part of the owner’s.

Wisconsin also ranks number one in production of mink pelts. In 2007, the State of Wisconsin mink farms produced over 914,000 pelts. In 2007, there were eight mink farms in the County, including the largest in North America. These mink farms sold about 230,000 pelts in 2007.

Table 2-6: Assessed Agricultural Lands, Sheboygan County’s 2008

Municipality Total Parcels Total Acreage Land value* Total Value T GREENBUSH 520 11477.64 $1,440,800 $1,440,800 T HERMAN 734 16087.16 $2,409,400 $2,409,400 T HOLLAND 918 18282.57 $2,976,200 $2,976,200 T LIMA 788 16770.69 $2,907,300 $2,907,300 T LYNDON 537 11638.71 $2,230,800 $2,230,800 T MITCHELL 384 7963.74 $1,315,300 $1,315,300 T MOSEL 442 8933.22 $1,365,000 $1,365,000 T PLYMOUTH 428 8573.94 $1,510,800 $1,510,800 T RHINE 436 8766.50 $1,268,100 $1,268,100

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Municipality Total Parcels Total Acreage Land value* Total Value T RUSSELL 265 6206.63 $880,100 $880,100 T SCOTT 611 12620.00 $2,402,400 $2,402,400 T SHEBOYGAN 86 1327.81 $178,100 $178,100 T SHEBOYGAN FALLS 631 12795.75 $2,262,600 $2,262,600 T SHERMAN 577 12777.71 $2,013,200 $2,013,200 T WILSON 363 7335.19 $1,254,800 $1,254,800 V ADELL 3 38.00 $4,600 $4,600 V CASCADE 12 78.60 $15,700 $15,700 V CEDAR GROVE 24 459.48 $62,300 $62,300 V ELKHART LAKE 1 48.03 $9,200 $9,200 V GLENBEULAH 8 158.10 $22,800 $22,800 V HOWARDS GROVE 25 161.76 $31,800 $31,800 V KOHLER 46 1245.30 $224,100 $224,100 V OOSTBURG 13 231.55 $41,400 $41,400 V RANDOM LAKE 15 216.61 $25,800 $25,800 V WALDO 16 269.10 $35,900 $35,900 C PLYMOUTH 4 92.47 $17,400 $17,400 C SHEBOYGAN 11 0.00 $42,100 $42,100 C SHEBOYGAN FALLS 27 592.51 $94,400 $94,400 SHEB. COUNTY TOTALS 7,925 165,149 $27,042,400 $27,042,400 Source: Sheboygan County Real Property Listing Office *This is only the assessed value of the land and not the true value of the land because agricultural lands are assessed at between $150-$175 dollars an acres, but sell for between $3,000 and $4,000. If you take the number of acres of farmland multiplied by $3,500 per acre the land would have a value of over $578,000,000.

Concentrated Animal Feeding Operations Every farm, regardless of size, is responsible for proper manure management to protect water quality from discharges. Over the past ten years, Wisconsin has become home to an increasing number of Concentrated Animal Feeding Operations (CAFOs), those operations with 1,000 or more animal units. Due to the increased number and concentration of animals, it is particularly important for these facilities to properly manage manure in order to protect water quality in Wisconsin.

A specific regulatory program for the handling, storage, and utilization of manure was developed by the DNR in 1984 in NR 243of the Wisconsin Administrative Code. The rule creates criteria and standards to be used in issuing permits to CAFOs as well as establishing procedures for investigating water quality problems caused by smaller animal feeding operations. Because of the potential water quality impacts from CAFOs, animal feeding operations with 1,000 animal units or more are required to have a Wisconsin Pollutant Discharge Elimination System (WPDES) Concentrated Animal Feeding Operation permit. These permits are designed to ensure that operations choosing to expand to 1,000 animal units or more use proper planning, construction, and manure management to protect water quality from adverse impacts. Animal units are calculated for each different type and size class of livestock and poultry. For instance, 710 milking and dry cows count as 1,000 animal units, but 2,500 pigs over 55 pounds is equal to 1,000 animal units. A more detailed breakdown of the number of animals equal to 1,000 animal units can be obtained from the WDNR.

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For new or expanding operations, a permit application must be submitted at least 12 months before an operator expects to reach 1,000 animal units or more. It is essential that operators contact the WDNR early on in the expansion planning process. This ensures that WDNR review of regulated structures is completed prior to construction, that permitting concerns can be addressed as part of the planning process, and that the WPDES permit is issued before the operation expands beyond 1,000 animal units. It is the responsibility of the owner to request an application from the WDNR.

Sheboygan County has three CAFOs. They are located in the Towns of Lima, Russell, and Sherman. Two of the CAFOs have less than 1200 animal units; whereas, one of the CAFOs is scheduled to have over 2700 animal units by 2013, over doubling in size from 2008. All of Sheboygan County’s CAFOs that have WPDES permits are all dairy cattle operations.

Hobby Farms A hobby farm is a small farm that is maintained without expectation of being a primary source of income. Some are merely to provide some recreational land, and perhaps a few horses for the family's children, others are managed as working farms for side income, or are run at an ongoing loss as a lifestyle choice by people with the means to do so. While there is no firm data on the number of hobby farms, it is known that the number of hobby farms has been increasing. According to the UW-Extension Sheboygan County Agriculture staff, it can be estimated that most farms less than 100 acres would be classified as hobby farms, this would mean that Sheboygan County has about 600 farms that would be classified as hobby farms.

Community Supported Agriculture Community Supported Agriculture (CSA) is like having your own personal farmer. In a CSA, you become a member of a local farm by purchasing a “share” in that farm. In return, you receive weekly deliveries of fresh produce throughout the growing season, typically late May to November. CSA’s grow their food in ways that enhance the life above and beyond the soil by eliminating pesticides that can kill micro- and megafauna and –flora, and reducing the use of fossil fuel as an energy source because all CSA farms are local so food only travels a short distance from the field to the kitchen.

In 2008, a CSA’s share typically averaged $15 to $20 a week. A shareholder pays up front for the entire season, which averages between 19 and 27 weeks a year, depending on the farm. Some farms offer “worker shares” exchanging work for a share of the produce. Each CSA provides a variety of fruit and vegetables, while some may even offer eggs, meats, and other products at an extra cost.

In 2008, there were at least five CSA’s within Sheboygan County, and two of these opened within the last year. As people lean towards buying local, organic, fresh foods, they have been turning to CSA’s.

Farm Household Demographics In 2002, there were a total of 1,729 total farm operators. Of these, 1,116 are principal operators of the farms. In 2002, the principal operator had an average of 20.2 years on the present farm, while the average age of the principal operator is 51.4 years of age. Family or individual farm ownership make up the greatest number of farms with 984 farms falling into this category.

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Environmental Impacts of Agriculture Sheboygan County farmers own and manage the resources on about 195,000 acres of land-35.2 percent of all land in the County. This includes pastures, cropland, woods and forests. Farmers implement various conservation practices to protect environmental resources and provide habitat for wildlife. A CAFO or large-scale farming operation is defined by federal and state statute as a facility that contains 1,000 animal units. As stated before, CAFOs are required to have a Wisconsin Pollution Discharge Elimination System (WPDES) permit. These farms are regulated under the Federal Clean Water Act and state water law because of their potential to negatively impact water resources. The WPDES permit regulates where and how much waste can be spread on fields, how the waste is temporarily stored in lagoons, and the design of a permanent runoff control system.

Due to the passage of 1997 Wisconsin Act 7 and 1999 Wisconsin Act 9, there were new regulations and rules that need to be implemented by the. Sheboygan County Land and Water Conservation Department (LWCD). The LWCD was given the authority of implementing NR 151, a runoff management administrative rule. This law sets new performance standards for farms to prevent runoff and protect water quality. This regulation states: all cropped fields must meet the tolerable soil erosion rate established for that soil type, all manure storage facilities must be constructed, maintained, or abandoned with accepted standards, there must be clean water diversions, agricultural operations applying nutrients to agricultural fields must do so according to a nutrient management plan, and manure management prohibitions must be followed.

The companion rule to go with the WDNR’s runoff rules is ATCP (Agriculture, Trade, and Consumer Protection) 50, which is promulgated by the Department of Agriculture, Trade, and Consumer Protection (DATCP). ATCP 50 identifies the conservation practices that farmers must follow to meet the WDNR standards. ATCP 50 establishes: the standards for the nutrient management plans, guidelines for DATCP approval of county land and water resource management (LWRM) plans, the allocation of DATCP funds for county implementation of LWRM plans, the use of the DATCP funds to pay for county staff and landowner cost-sharing, local regulation including cost-sharing requirements to enforce performance standards, and practices cost-shared by DATCP and WDNR.

Sheboygan County’s LWCD is responsible for implementing the nonpoint source pollution regulations at the local level. The LWCD developed the Land and Water Resource Management Plan. This Plan sets forth the way the County will implement the rules set forth by the DATCP, in particular this plan developed goals and the first being to reduce the sediment and phosphorus loadings that degrade the water quality of Sheboygan County. Many of the goals require involvement from farmers, as well as other agencies, and community groups. Some programs that LWCD implements provide cost-sharing, so that people are able to come into compliance with the regulations and rules. These programs help to improve the environment and water quality of Sheboygan County. This Plan was developed by the LWCD and then approved by the DATCP in 2004, in response to ATCP 50.

The LWCD has created a Vegetated Buffer Strip Program. This program is administered by the LWCD. The goal of the Buffer Strip Program is to install vegetated buffers along all the streams

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classified as navigable under the County's Shoreland and Floodplain Ordinance. This program will help to reduce the soil erosion that occurs during rain events. Participation in the program is voluntary, but County cost-sharing funds are being provided as a conservation incentive to landowners for planting these buffer strips. The amount of payment per acre and the length of the required maintenance period varies between three different buffer options the landowner can choose to build. Since the program began, 288 tons of sediment was saved from being washed away and over 30 miles of linear feet of buffer strips have been installed. There are 63 landowners participating in this program and about 178 acres are located in these buffer strips.

Sheboygan County is also part of the North Branch Milwaukee River Wildlife and Farming Heritage Area. This area is encompasses river and stream corridors, large wetland complexes, agricultural lands, and three small lakes. The core area of wetlands and agricultural lands make up 16,549 acres and corridors along five tributary streams make up an additional 2,938 acres. The entire study area lies within the Milwaukee River basin in northeastern Washington, northwestern Ozaukee, and southwestern Sheboygan counties. The DNR, Ozaukee Washington Land Trust, and Glacial Lakes Conservancy are using a variety of real estate tools, including fee title, donated conservation easements, and purchase of development rights (PDR) in this region with willing landowners to protect agricultural lands, wetlands, forests, and other natural resources in order to maintain farming as a viable land use in one of the largest blocks of open space remaining in southeastern Wisconsin, and to protect the water quality of the Milwaukee River.

Sheboygan County’s LWCD is in charge of regulating the Sheboygan County Animal Waste Storage Ordinance (AWSO) (Chapter 77) enacted in August of 1996. The purpose of the AWSO is to assure the safe handling and spreading of animal waste, as well as to regulate the location, design, construction, alteration, operations, and maintenance of all animal feeding operations and livestock waste storage facilities; to regulate the abandonment of livestock waste storage facilities in order to prevent water pollution; protect the health and safety of residents and transients; and to prevent the spread of disease. This ordinance helps the LWCD to achieve their goal of controlling animal waste runoff.

Forest lands are also very important as they capture carbon and are a renewable resource. They provide clean water, clean air, erosion control, wildlife habitat, and sanctuaries for hundreds of species of rare plants and animals and natural communities.

Economic Impacts of Agriculture According to the “Sheboygan County Agriculture: Value and economic impact,” Sheboygan County agriculture generates more than $1.74 billion in economic activity. This accounts for 21 percent of Sheboygan County’s total economic activity. Every dollar of sales of agricultural products generates an additional $0.31 of economic activity in other parts of Sheboygan County’s economy.

Sheboygan County agriculture provides 9,399 jobs, which include owners, on-farm employees, veterinarians, crop and livestock consultants, feed and fuel suppliers, food processors, farm machinery manufacturing and sales, barn builders, and many others. Every new job in agriculture in the County generates one additional job in the County. Agriculture is economically vital to the County.

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Agriculture also generates $485.2 million of Sheboygan County’s total income. This includes wages, salaries, benefits, and profits of farmers and workers in agriculture-related businesses. Every dollar of agricultural income generates an additional $.73 of county income.

Dairy is Sheboygan County’s largest sector of agriculture. Sheboygan County milk and dairy producers and the dairy industry contribute $1.14 billion to the County’s economy. One dairy cow generates $2,148 in direct income to producers. In 2002 it was thought there were over 25,600 dairy cows in the County. Each of these cows generates $15,000 to $17,000 of economic activity. Twelve plants in Sheboygan County process dairy products. This means this industry affects a lot more than just the farmers. Milk is the tope commodity in Sheboygan County. Table 2-7 provides the top commodities (sales by dollar value, 2002) for Sheboygan County.

Table 2-7: Sheboygan County’s Top Commodities Commodity Sales by Dollar Value, 2002 (in millions) Milk $58.7 Cattle & Calves $15 Grain $13.9 Other animals & products $7.3 Vegetables $3.0 Source: “Sheboygan County Agriculture: Value and Economic Impact”, 2004

Not only do the farms generate income and jobs for the County they also generate nearly $44.2 million in local and state taxes. Farms and agriculture-related businesses generate $11 million in income tax, $10.6 million in sales tax, and $12.9 million in property taxes.

According to the 2007 Census on Agriculture, mink farms recorded a record amount of sales, generating $74 million in pelt and animal sales, which is the second highest amount in the State and fourth highest in the nation.

Agriculture Related Infrastructure and Operations Sheboygan County’s agriculture industry makes a larger impact to the County than just producing milk or livestock. The agriculture industry needs infrastructure to operate, which in turn, provides economic opportunities for other businesses. Farmers need: machinery to work their fields, seeds to plant, fertilizer to buy, places to store grain, places to send their milk and meat for processing, veterinarians to check on animals, etc.; this is where many other industries and jobs are related to agriculture.

Feed Mills, Agricultural Cooperatives, Grain Storage, and Implement Dealers Sheboygan County is home to a few feed mills, agricultural cooperatives, and grain storage availability. An agricultural cooperative aggregate purchases, storage, and distribution of farm inputs for their members. By taking advantage of volume discounts and utilizing other economies of scale, supply cooperatives bring down the cost of the inputs that the members purchase from the cooperative compared with direct purchases from commercial suppliers. Supply cooperatives provide inputs required for agricultural production including seeds,

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fertilizers, chemicals, fuel, and farm machinery. Some supply cooperatives operate machinery pools that provide mechanical field services (e.g., plowing, harvesting) to their members. There are also two places that allow for grain storage in the County. This is a necessity for farmers and will continue to be in the future. For those farmers do not use cooperatives for their equipment, many purchase equipment through a variety of local implement dealers. These dealers sell a variety of products to help in the farming operations.

Processing Dairy, Meat Products, and Canning Companies Two of the top ten large employers in Sheboygan County rely on agriculture for their operations. Sargento and Johnsonville Sausages are two of the largest employers in the County, and both rely on agriculture for their business. Sheboygan County has several other cheese making and cheese packaging companies, as well as, meat and meat processing companies. These are located throughout Sheboygan County. Random Lake is also home to a cannery. This is becoming less common throughout the state and is another business that is supported through agriculture.

Other Agriculture-Supported Businesses Some other businesses that are supported through agriculture are veterinarians, agronomists, grocery stores, irrigators, forest product and business industries, including log homes. All of these business and jobs are partially or wholly supported through agriculture and its related products.

It will be important for Sheboygan County’s future to make sure that both the farmers and their related services and operations are available in the County. These industries rely on one another and without one, the other may fail.

Agricultural Organizations and Programs in Sheboygan County Wisconsin and Sheboygan County Farm Bureau Federation The Wisconsin Farm Bureau Federation is the state’s largest general farm organization representing the needs and interests of all farmers for all commodities. There are 43,000 member families that belong to the Wisconsin Farm Bureau. Voting Farm Bureau members (farmers) annually set the policy the organization follows, and are involved in local, state and national affairs making it a true grassroots organization. Members belong to one of 61 county Farm Bureaus, all run by farmer board of directors. Sheboygan County’s Farm Bureau is involved in a variety of legislative and promotional activities. People join the Farm Bureau to support legislative and public relations efforts, to qualify for member benefits, to support farming families of Wisconsin. Sheboygan County’s Farm Bureau mails a newsletter to members every other month to keep members informed. The board of directors also holds monthly meetings.

U.S. Department of Agriculture Farm Service Agency (FSA) The Farm Service Agency (FSA) administers and manages farm commodity, credit, conservation, disaster and loan programs as laid out by Congress through a network of federal, state and county offices. These programs are designed to improve the economic stability of the agricultural industry and to help farmers adjust production to meet demand. Economically, the desired result of these programs is a steady price range for agricultural commodities for both farmers and consumers. The FSA County Office is located in Sheboygan Falls on Forest Avenue. In 2006, farmers received $5,576,723 in farm subsidies, of which $5,389,468 was related to farm programs and the rest related to conservation programs.

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National Farmers Organization (NFO) The National Farmers Organization has a primary goal of better prices for farm commodities. Across the country, National Farmers combines commodities from farms, and then NFO’s marketing professionals go to work for the farmers, negotiating with major agricultural industry buyers to improve farmers bottom line.

Green Tier Wisconsin’s Green Tier program rewards regulated and un-regulated businesses, communities and trade associations aspiring to deliver superior environmental performance. The law provides tools that allow for a transition from just compliance minimums to performance recognition systems. Green Tier uses collaborative, proactive relationships to find creative solutions to further protect, improve, and restore Wisconsin’s environment while building business value and recognition.

CULTURAL RESOURCES Historic and Archeological Sites Portions of Sheboygan County have been inhabited by Native Americans for several thousand years, and since the 1700s by European Settlers. In recent years, Hispanics, Laotians, and other ethnic groups have moved to Sheboygan County. This continues to add to the area’s ethnic diversity. Subsequently, there are many buildings of historical importance within the region. For this plan, historic districts on the state and/or national registry have been identified in Sheboygan County’s Natural Areas and Critical Resources Plan, Appendix C-State of Wisconsin Historical Society Database Results for Sheboygan County. In 2004’s Natural Areas and Critical Resources Plan the Cultural Resources Committee identified important cultural resources in the following categories shown in Table 2-10. Sheboygan County’s Natural Areas and Critical Resources Plan developed a vision for cultural and historic resources in Sheboygan County through the year 2020. This vision is “In 2020, Sheboygan County embraces a climate for cultural and historic resources that promotes a healthy economy and a high quality of life for all residents and visitors. The County promotes sound land use decisions that minimize negative impacts on these resources, considers long-term consequences, is suitable for a location, accounts for community costs, results from a broad public consensus, and is consistent with the community and regional character.”

An inventory of these cultural resources can be found in Sheboygan County’s Natural Areas and Critical Resources Plan, Appendix B-Cultural Resources Inventory. Some of these cultural resources include: the All Saints Chapel in the Town of Rhine; the Random Lake Ice Company; Henschel’s Indian Museum; the old resorts in Elkhart Lake; Plymouth, Sheboygan, and Elkhart Lake Railroad Depots; old school houses all around the County; and many other cultural resources.

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Table 2-10: Categories of Cultural Resources Inventory Archaeological Sites Libraries Arts (galleries/museums, murals) Lighthouses Barns Meat Markets (“old fashioned”) Bridges Native Sites Cemeteries Old Hotels Century Farms Railroad Cheese Factories Railroad Depots Churches (old) Restaurants Ethnic Events (Holland Fest, Greek Fest) Road America Feed Mills Roads Forests (kettle forest in Elkhart Lake) Settlement Patterns Government Buildings Schools, education, parks (e.g. Marsh) Historical Event/People Streets (brick) Ice Industry Stores (e.g. corner stores) Inter-Urban Rail Line (resort-town Wade House Historic Site culture, influence on the communities)

Sheboygan County is home to 41 places on the National Historical Registry. Care should be taken when excavation is done within Sheboygan County, since there is the possibility of disturbing a site of cultural or archeological significance. Table 2-11 provides a listing of all of the places in Sheboygan County on the National Historic Register.

Table 2-11: Sheboygan County Places on the National Historic Register Landmark name Date listed Location City or Town American Club May 22, 1978 High St. Kohler John Balzer Wagon December 23, 1993 818-820, 820A Pennsylvania Ave. Sheboygan Works Complex Thomas M. and Bridget March 17, 1995 507 Washington Ct. Sheboygan Blackstock House 501 and 517 Monroe St. and 504, 508, Cole Historic District December 01, 1988 Sheboygan Falls and 516-518 Water St. Roughly bounded by Broadway, Downtown Historic December 27, 1984 Monroe, Pine, and Buffalo Sts., and the Sheboygan Falls District Sheboygan River Elkhart Lake Road Race February 17, 2006 Cty Hwys, J, P, JP, A, and Lake St. Elkhart Lake Circuits Foeste, Henry Store September 01, 1995 522 S. Eighth St. Sheboygan Building Franklin Feed Mill April 11, 1985 Franklin Rd. Franklin Friendship House July 10, 1974 721 Ontario Ave. Sheboygan 746, 810, 830 N. Water St., 1104 Garton Toy Company May 11, 2000 Sheboygan Wisconsin Ave. Glenbeulah Mill/Grist December 27, 1984 Gardner St. Glenbeulah Mill Gooseville Mill/Grist Mill December 27, 1984 Silver Creek-Cascade Rd. Adell

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Landmark name Date listed Location City or Town HETTY TAYLOR Lake Michigan, 7 mi. SE of Sheboygan June 01, 2005 Sheboygan (shipwreck) R. Hotel Laack December 02, 1985 52 Stafford St. Plymouth Henry H. Huson House November 28, 1980 405 Collins St. Plymouth and Water Tower Henry and Charles Imig July 09, 1998 625-629 N. Eighth St. Sheboygan Block Jung Carriage Factory July 10, 1974 829-835 Pennsylvania Ave. Sheboygan Jung Shoe Manufacturing January 22, 1992 620 S. Eighth St. Sheboygan Company Factory Kletzien Mound Group July 23, 1981 Address Restricted Sheboygan (47-SB-61) Kohler Company Factory April 06, 2001 444 Highland Dr. Kohler Complex John Michael Kohler November 30, 1982 608 New York Ave. Sheboygan House Mission House Historic December 20, 1984 County Trunk M Herman District Onion River Flouring December 27, 1984 Hwy 57 Waldo Mill/Grist Mill Plymouth Post Office October 24, 2000 302 E. Main St. Plymouth Riverbend December 04, 1980 Lower Falls Rd. Kohler Charles Robinson House December 20, 1984 Center St., Old Wade House State Park Greenbush Robinson-Herrling December 27, 1984 Old Wade House State Park Greenbush Sawmill Henry and Henriette Roth April 29, 1993 822 Niagara Ave. Sheboygan House Sheboygan County March 12, 1982 615 N. 6th St. Sheboygan Courthouse Sheboygan Post Office October 24, 2000 522 N. Ninth St. Sheboygan Sheboygan Theater December 22, 1999 826 N. Eighth St. Sheboygan St. Patrick's Roman September 08, 1983 WI 1 Adell Catholic Church David Taylor House January 02, 1976 3110 Erie Ave. Sheboygan Third Ward School September 03, 1981 1208 S. 8th St. Sheboygan I. C. Thomas Drug Store July 10, 1974 632 N. 8th St. Sheboygan USS Edson (DD-946) 1990 Sheboygan Villa Laun January 28, 1982 402 Lake Side Park Dr. Elkhart Lake Villa Von Baumbach November 30, 1982 754 Elkhart Lake Dr. Elkhart Lake At jct. of WI 23 and Kettle Moraine Dr. Sylvanus Wade House October 26, 1971 Greenbush in Old Wade House State Park Windway July 28, 1988 CTH Y, N of CTH O Sheboygan Wolff-Jung Company January 30, 1992 531 S. Eighth St. Sheboygan Shoe Factory Source: National Parks Service, National Register of Historic Places

Sheboygan County has several museums of particular interest. The first is the Sheboygan County Museum which features a complex of historical buildings built in the 19th Century as well

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as temporary exhibits that exemplify the historical significance of the area. The museum’s mission is the discovery, collection and preservation of information, records and objects relating to the history of the county of Sheboygan and the dissemination of knowledge concerning the same.

Another museum is the John Michael Kohler Arts Center was established in 1967 with the intent to encourage and support study in the arts and to promote exchange between a national community of artists and a broad public to realize the significance of art. The center supports a wide variety of educational programs, artistic displays, and performing arts productions.

Wade House Stagecoach Inn & Wesley Jung Carriage Museum includes eight historical buildings, nature trails, picnic areas, famous carriage collection & museum, all in a designated National and State Historic Site. The Wades were the first permanent settlers in Greenbush. They chose a place halfway between Sheboygan and Fond du Lac along a well-used stagecoach trail. The Mullet River crossed the trail, offering a promising source of water power. The Wade's purchased several sections of land around a potential mill site as well. The Wade House was used as an inn until 1910, but with the railroad bypassing Greenbush, the inn no longer became necessary. The Kohler Family restored the Wade House in the 1950s and in 1963 the Wisconsin Legislature voted to create a permanent home for the carriage collection of Wesley W. Jung, grandson of a Sheboygan carriage maker, at the Wade House site.

The Sheboygan County Historical Research Center specializes in the preservation and storage of written records of all of Sheboygan County and the surrounding area. It is a private, non-profit archive that funds itself primarily by memberships and donations. Information that can be found here include birth, death, and marriage information, township records, immigrant information, church records, land records, and many other pieces of history of Sheboygan County.

Historic Districts There are four main historic districts within the County.

Cole Historic District, City of Sheboygan Falls was listed in the State and National register on December 1, 1988. It is situated on about an acre and consists of 5 commercial and domestic dwellings in Greek Revival and other styles from the period between 1837-1867. This district is home to the Sheboygan County Historical Research Center which is housed in the Mill House, the oldest building in Sheboygan County. The Mill House is a two-story, wood frame Greek Revival building with a side-gabled roof and returned eaves, that rests on a limestone foundation. It was built in 1837 by the Rochester Lumber Company for boarding their workers, it also served as the first home for early settlers in the county, accommodating their families until they could build their own homes. Charles Cole purchased the structure in 1860 for two of his sons. A wall was built through the middle of the house, dividing it exactly in half. Called the double or "mirror" house by local residents, the house remained a two-family home until the late 1960, when it was remodeled into a four family apartment house.

Downtown Historic District, City of Sheboygan Falls was listed in the State and National Register on December 27, 1984. It is situated on 65 acres consisting of over 30 buildings in later Victorian, 19th and 20th Century Revivals and other styles from the period between 1885 and 1928.

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Mission House Historic District, Lakeland College, Town of Herman was listed in the State and National Register on December 20, 1984. It is situated on 100 acres and consists of 5 buildings in Colonial Revival, Classical Revival and late Gothic Revival from the period between 1879 and 1934.

Downtown Churches Historic District, City of Sheboygan, was listed as a State Historic Register in 2009, making it the first historic district in the City of Sheboygan. This district is bordered by Erie Avenue, Ontario Avenue and Sixth and Seventh Streets. There are four churches in this square block including: Grace Episcopal Church, St. Mark’s Lutheran Church, Hope Reformed Church, and St. Luke’s Methodist Church.

The City of Sheboygan, Wisconsin Architectural and Historical Intensive Survey Report, prepared in 2002 by LJM Architects for the City of Sheboygan is a valuable resource for identifying potential historic resources in the City of Sheboygan.

Community Design Community design as a cultural resource helps explain the origins and history of how a given community looks, feels, and functions in the present day. Components of the origin of community design to include historic settlement patterns, resource use (like mining, farming, and forestry) in rural areas, the industries and businesses that influence urban areas, transportation features and traffic flow patterns, natural features like rivers, lakes, and wetlands, and the heritage and values of the people that lived in a community in the past and that live there today.

These factors might be expressed through street layout, building architecture, landscaping, preservation of natural features, development density, highway entryways, and other components of development design. The design of a community as seen today might also be influenced by community decisions including the use of zoning and subdivision controls, the establishment of parks and other community facilities, the use of historic preservation, and in some cases, the use of land use planning. Each municipality within Sheboygan County has its own unique community design, so when all municipalities are taken together, they make up the community design of Sheboygan County.

SUMMARY Sheboygan County has a diverse amount of natural resources. Lake Michigan and other surface water features make this area unique. These areas should be protected and preserved. The air quality standard for 8-hour ozone levels in the County is above EPA standards. The County shall work with other governmental entities in order to work to reduce the ozone levels.

The County also has unique land features because of the glacial landforms that occur in the western portion of the County. There are kames, kettles, bogs, and a kettle lake within the County. Many of these landscapes are located in the Kettle Moraine State Forest-Northern Unit.

Agriculture also plays an important role not only with land use, but in the local economy, where it generates $1.74 billion in economic activity. Some agriculture land is used for development, but land use conflicts can occur if development is not planned properly.

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Cultural and historical resources play a role in taking a glimpse into Sheboygan County’s past. These sites are important because they help show the cultural and economic effect various immigrants had on the community.

It will be vital for the future of Sheboygan County that natural, agricultural, and cultural resources be protected and preserved as development occurs that may impact these resources. Policies and programs shall be developed in a way that allows these resources and development to coexist.

NATURAL, AGRICULTURAL, AND CULTURAL RESOURCES STRATEGY AND RECOMMENDATIONS Sheboygan County will seek direction for this element from various forms of public input such as the survey that was sent to County residents and the input from the Smart Growth Implementation Committee. Vision

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

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Natural Resource Goals, Objectives, Policies, and Programs Water Resources Groundwater Goal 1: Protect, enhance, and restore groundwater quality and quantity in Sheboygan County. Objective: Protect both public and private drinking water supplies. Policy/Program: Work with appropriate partners to complete a study to determine the County’s groundwater recharge areas. Policy/Program: Develop a program to protect the groundwater recharge areas. Policy/Program: Promote groundwater infiltration in areas associated with natural groundwater recharge by minimizing impermeable areas and promoting wetland creations, enhancements, and restorations. Policy/Program: Continue to monitor private drinking water supplies through voluntary testing by the UW-Extension, and where feasible look to have a water testing lab at UW-Sheboygan. Policy/Program: Continue to monitor public drinking water supplies, in accordance with state and federal laws. Policy/Program: Continue to identify unused wells and then promote the proper abandonment of wells through the County Land and Water Conservation Department’s abandoned well program. Policy/Program: Support land use patterns and water quality control facilities, programs, and operational improvements, including non-point pollution controls and sewage and stormwater management systems, to protect groundwater quality. Policy/Program: Continue to implement the County Sanitary Regulations, Chapter 70 of the Sheboygan County Code of Ordinances, which includes regulation of private onsite waste treatment systems (POWTS). Policy/Program: Promote groundwater supply planning at a regional level.

Surface Water Goal 2: Identify, protect, and restore valuable surface water resources in Sheboygan County. Objective: Take a watershed approach to the management of water resources. Policy/Program: Provide technical support and assistance to partners on watershed protection. Policy/Program: Utilize plans from partnering agencies and organizations in the County’s watershed planning efforts. Objective: Encourage the protection of lakes, rivers, streams, and creeks in Sheboygan County. Policy/Program: Continue to implement the Sheboygan County Shoreland- Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances. Policy/Program: Continue to provide the Water Quality Improvement Program (the Buffer Strip Program), that create buffers along Sheboygan County’s waterways.

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Objective: Promote stormwater management measures that prevent non-point pollution in rural and urban areas. Policy/Program: Continue to implement the Animal Waste Storage Facility Code, Chapter 77 of the Sheboygan County Code of Ordinances. Policy/Program: Continue to implement the Erosion Control and Stormwater Management regulations, Chapter 75 of the Sheboygan County Code of Ordinances. Policy/Program: Develop and maintain stormwater management plans at County facilities. Policy/Program: Seek to work with and support municipalities on the management of stormwater structures. Policy/Program: Encourage a watershed approach to stormwater management. Policy/Program: Work towards compliance with State and Federal stormwater management requirements. Policy/Program: Encourage partnerships for stormwater management. Policy/Program: Continue education and outreach to inform the public about stormwater management projects. Policy/Program: Promote stormwater Best Management Practices, including rain barrels, rain gardens, green roofs, porous pavement, infiltration basins, etc. in new and existing development areas. Policy/Program: Apply for stormwater management and education grants. Objective: Reduce sedimentation, pollution, and eutrophication of lakes, rivers, and streams in Sheboygan County. Policy/Program: Develop and continue programs that address agricultural runoff, farming practices, and shoreland development as it relates to water quality impacts to surface waters in Sheboygan County. Policy/Program: Limit the amount of salt used on County highways, to reduce salt runoff into surface waters. Policy/Program: Collaborate with the WDNR and others to develop and distribute educational materials to the public regarding non-point and point source pollution, including the continuation of the Clean Water Partnership. Policy/Program: Support the continuation of the County’s Waste Pharmaceuticals and Hazardous Waste Collection Programs. Policy/Program: Continue to implement the County Sanitary Regulations, Chapter 70 of the Sheboygan County Code of Ordinances, which includes regulation of private onsite waste treatment systems (POWTS).

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Lake Michigan/Coastal Areas Goal 3: Protect and enhance Lake Michigan and its coastal resources. Objective: Encourage the protection of Lake Michigan's water quality and shoreline, including Lake Michigan bluffs, estuaries, dunes, habitat areas, floodplains, coastal wetlands, and natural areas. Objective: Support the goals and objectives of the federal, state, and local Lake Michigan plans, such as the Great Lakes Regional Collaboration, Wisconsin’s Great Lakes Restoration and Protection Strategy, and the EPA’s Lake Michigan Lake Management Plan. Policy/Program: Support the acquisition and restoration of the Amsterdam Dunes property. Policy/Program: Support the protection and restoration of coastal wetland areas. Policy/Program: Inventory and preserve environmental corridors in the “coastal corridor.” Policy/Program: Inventory and protect coastal areas that conserve the Lake Michigan flyway, the WDNR’s Land Legacy Areas, and the natural communities of beaches and dunes. Policy/Program: Encourage projects that provide public access to Lake Michigan. Policy/Program: Provide educational opportunities for the public to gain a better understanding of their role in protecting Lake Michigan and measures to mitigate human impacts on the resource. Policy/Program: Continue to provide technical assistance to landowners who build along the Lake Michigan coast, including educating landowners on the proper siting of septic systems, vegetative management of bluffs, and proper stormwater management to reduce impact on slope stability. Policy/Program: Support restoration and delisting of the Sheboygan River Area of Concern, as defined by the International Joint Commission (IJC). Policy/Program: Support programs that address runoff, farming practices, public works projects, construction, and shoreland development as it relates to water quality impacts to Lake Michigan. Policy/Program: Continue to implement the Sheboygan County Shoreland- Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances in coastal areas, including appropriate setbacks in bluff and dune areas.

Floodplains Goal 4: Manage and protect floodplains in Sheboygan County. Objective: Promote effective floodplain management programs. Policy/Program: Provide technical resources to towns, homeowners, businesses, and institutions and raise awareness of the risks of floodplain development and the availability of mitigation and disaster assistance programs. Policy/Program: Continue implement the Sheboygan County Floodplain Ordinance, Chapter 73 of the Sheboygan County Code of Ordinances. Policy/Program: Develop a public educational program and distribute these materials to the public regarding floodplain management. Policy/Program: Inform local insurance agents, real estate agents, builders, and lenders on who to contact regarding floodplain issues.

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Objective: Strive to limit urban development in floodplains. Policy/Program: Eliminate repetitive loss properties in Sheboygan County. Objective: Continue to work with the U.S. Army Corps of Engineers and FEMA in numerous projects/programs. Policy/Program: Update the floodplain maps periodically.

Wetlands Goal 5: Identify, protect, and restore wetlands in Sheboygan County. Objective: Encourage the protection and restoration of wetlands from destruction and degradation. Policy/Program: Maintain an inventory of the County’s wetlands, including those created for mitigation purposes. Policy/Program: Continue to implement the Sheboygan County Shoreland- Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances. Policy/Program: Consider the development of new wetland setback requirements adjacent to all wetlands. Policy/Program: Encourage development away from wetlands. Policy/Program: Collaborate and cooperate with the NRCS, the WDNR, and the U.S. Fish and Wildlife Service to ensure classification and restoration of wetlands.

Air Quality Goal 6: Improve and protect air quality in Sheboygan County. Objective: Promote measures designed to improve air quality. Policy/Program: Encourage development designs that promote walking, bicycling, and transit options. Policy/Program: Continue to seek funding for the maintenance of non-motorized transportation facilities. Policy/Program: Continue to cooperate with the EPA and WDNR to improve and protect air quality. Policy/Program: Encourage municipalities to create Climate Action Plans.

Land Resources Goals 7: Protect, enhance, and restore land resources. Soils Objective: Preserve soils in Sheboygan County. Policy/Program: Encourage soil conservation practices to reduce erosion and protect water quality in the County. Policy/Program: Implement strategies regarding soil sustainability and sedimentation as recommended in the Sheboygan County Land and Water Resource Management Plan. Policy/Program: Encourage the use of Best Management Practices (BMPs).

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Woodlands Objective: Preserve, enhance, and promote the sustainable use of forest resources. Objective: Conserve productive forestland by expanding the use of conservation easements, incentives, and voluntary, long-term stewardship of forestlands. Objective: Promote healthy vigorous forests to minimize losses from pests and wildfire. Objective: Discourage forest parcelization and isolation. Policy/Program: Conserve forestlands that are susceptible to development, have the potential to connect to other parcels of forestland, have public importance, and provide critical ecological functions. Policy/Program: Work with the appropriate individuals and organizations to prohibit development on critical forestland by acquiring donated conservation easements, purchase of development rights or transfer of development rights on those lands. Policy/Program: Develop a fund for protection and management of high priority forestland, where reasonable. Policy/Program: Protect lands identified as Wisconsin Forest Legacy Areas and areas identified in the Land Legacy Report, if they fall within Sheboygan County.

Environmental/Natural Corridors Objective: Identify, preserve, and protect environmental corridors and valuable natural resources areas in Sheboygan County. Objective: Encourage conservation easements and other protection tools to preserve environmental corridors. Policy/Program: Work with Bay Lake Regional Planning Commission to develop an environmental corridors program. Policy/Program: Classify and prioritize environmental corridors in Sheboygan County. Policy/Program: Research and become aware of the “Sustain, Reconnect, and Grow the Environmental Corridors Program, (SRGE).” Policy/Program: Work with local organizations and land trusts to preserve environmental corridors.

Shorelands/Riparian Areas Objective: Conserve and restore shorelands and riparian areas (corridors adjacent to waterways) in Sheboygan County. Policy/Program: Combine public and private efforts to restore riparian stream buffers for water quality and wildlife. Policy/Program: Explore the use of overlay districts in the Shoreland Zone with setbacks for lakes, streams, and wetlands requiring additional care and proof that development will not have a negative effect on these resources. Policy/Program: Continue to implement the Sheboygan County Shoreland and Shoreland-Wetland Ordinance, Chapter 72 of the Sheboygan County Code of Ordinances. Policy/Program: Protect the wooded riparian areas, by exploring the modification of existing County ordinances to increase the minimum distance for brush and tree removal from riparian areas.

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Scenic Resources Objective: Encourage the preservation of scenic viewscapes. Policy/Program: Identify and compile a listing of the geological features in the County. Policy/Program: Provide educational information to local municipalities about view and vista ordinances and about preservation of these natural features.

Nonmetallic Mining Operations Goal 8: Encourage the wise management of aggregate (sand, clay, gravel, and crushed stone) resource areas in Sheboygan County. Objective: Ensure that future mining sites will not negatively impact the County or its residents. Objective: Promote planning for an adequate supply of aggregate for new construction and maintenance of existing infrastructure. Objective: Strive to protect views, the natural environment and aesthetics throughout the mining process. Policy/Program: Continue to implement the Sheboygan County Nonmetallic Mining Ordinance, Chapter 78 of the Sheboygan County Code of Ordinances. Policy/Program: Ensure mining sites follow their reclamation plans.

Biological and Habitat Resources Goal 9: Identify and protect Sheboygan County’s native biological resources. Objective: Inventory, protect, and restore Sheboygan County’s biodiversity and habitats. Policy/Program: Refer and support resource priorities and plans of Wisconsin and conservation associations, such as Land Legacy Reports, Lake Michigan Shorelands Alliance, Sheboygan River Basin Partnership, Glacial Lakes Conservancy, and the Nature Conservancy. Policy/Program: Promote and encourage landscaping of native species on public and private lands in Sheboygan County. Policy/Program: Continue to provide the County tree/plant sale to encourage the planting of native species. Objective: Inventory, control, and reduce the spread of invasive species in Sheboygan County, including both land and aquatic species. Policy/Program: Develop programs to educate, control, and reduce the spread of invasive species on public and private lands in Sheboygan County. Policy/Program: Continue to inventory areas with invasive species. Policy/Program: Develop a repository for invasive species data. Policy/Program: Support the creation of plans to address any major invasive species infestations, including the Emerald Ash Borer, zebra mussels, Japanese Knotweed, etc. Policy/Program: Work to eliminate invasive species from within the County, where feasible. Partner with local organizations and governmental agencies, where available. Policy/Program: Develop a public-informational program on invasive species, including the prevention of and removal of the species.

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Objective: Inventory critical habitat areas in Sheboygan County. Objective: Preserve habitat sites for native plants and wildlife. Policy/Program: Protect and enhance environmentally sensitive habitats. Policy/Program: Gather and share information on critical habitats and species with the Bureau of Endangered Resources and other interested parties. Policy/Program: Work with organizations to apply for funding to enhance and preserve the sensitive habitat areas and species.

Parks and Open Space Goal 10: Preserve and enhance the system of parks, trails, and open space within Sheboygan County. Objective: Provide an integrated system of public parks, trails, and related open space areas that will provide County residents with adequate opportunity to participate in a wide range of outdoor recreation activities. Objective: Encourage the protection of high-quality open space lands through public, private, and nonprofit partnerships. Policy/Program: Conduct an inventory of areas that would support a natural corridor between major public land holdings. Policy/Program: Continue cooperation in the management of the Sheboygan Marsh Park with the WDNR. Policy/Program: Identify, protect, and preserve the County’s significant natural scenic and open space areas for the enjoyment of residents and visitors and for the present and future generations. Policy/Program: Ensure future County outdoor recreation and open space plans are adopted by the County Board of Supervisors and certified by the WDNR, so the County is eligible to receive available State and Federal outdoor recreation grants. Policy/Program: Work with local municipalities to ensure the outdoor recreation and open space plan are updated. Policy/Program: Continue to fund the County Stewardship Program for preservation and acquisition of parks and open space. Policy/Program: Support private conservation organizations, including shooting clubs, fishing clubs, conservation clubs, etc.

Agricultural Resource Goals, Objectives, Policies, and Programs

Goal 11: Identify Sheboygan County’s productive and viable agricultural land. Objective: Develop a Land Evaluation and Site Assessment (LESA) study for Sheboygan County. Program/Policy: Develop and adopt Site Assessment criteria for the Sheboygan County’s Land Evaluation and Site Assessment (LESA) score. Program/Policy: Hold public informational meetings to share the LESA scores with local municipalities.

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Goal 12: Encourage agri-businesses and agricultural activities as viable economic industries in the County. Objective: Retain and expand ag-related businesses in the County. Policy/Program: Explore the development of a program to promote an agricultural economic cluster of farming operations and appropriate agri- businesses on lands designated for agricultural use on the County Future Land Use Map. Policy/Program: Support a program to market and link Sheboygan County farms and agricultural products, including organic products, to restaurants and grocery stores in Sheboygan County and surrounding areas. Policy/Program: Develop a local or regional ‘brand’ for agricultural products. Policy/Program: Work with the UW-Extension to create a resource log of existing programs available to support beginning farmers and ensure that this resource is effectively communicated to existing and potential farmers so that people are aware of available programs. Program/Policy: Continue to support the UW-Extension, local high schools, and LTC to promote agribusiness education programs, and encourage young and beginning farmers to attend classes. Program/Policy: Work with the UW-Extension to promote the economic impact of agriculture in Sheboygan County. Policy/Program: Continue to support and provide a periodic economic analysis for agriculture in Sheboygan County, following the agriculture census. Objective: Work with ag-related businesses looking to locate or expand in the County. Policy/Program: Use State and Federal grants to promote agriculture and associated agricultural industries in the County. Policy/Program: Support economic initiatives to ensure farming remains viable in Sheboygan County, including funding programs, agri-tourism, and direct marketing of farm products. Policy/Program: Support Green Tier and agricultural businesses who participate in Green Tier. Objective: Encourage local municipalities to acknowledge the value of agri-business in their communities. Policy/Program: Educate local municipalities on the importance of agri- businesses and farmers reliance on these businesses.

Goal 13: Sheboygan County offers assistance and resources for the preservation and protection of agricultural lands to ensure farming remains viable in Sheboygan County. Objective: Protect the most productive and viable agricultural lands in the County for long-term agricultural use. Program/Policy: Protection of farmlands that have the highest LESA scores shall be given highest priority for preservation. Program/Policy: Encourage more compact, dense development within sewer service areas to minimize the development of farmland for urban uses. Program/Policy: Utilize grants and funding sources, where applicable, to preserve and protect agricultural lands. Program/Policy: Continue to support the County’s Stewardship Fund.

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Objective: Support implementation of the Working Lands Initiative recommendations.. Program/Policy: Update the Sheboygan County Farmland Preservation Plan based on the LESA analysis and any revisions made to the Wisconsin Farmland Preservation Program (FPP) by the Wisconsin Working Lands Initiative legislation.

Goal 14: Protect farms and farming in Sheboygan County. Objective: Support the “Wisconsin’s Right to Farm” Law. Policy/Program: Minimize the potential for conflicts between rural landowners. Policy/Program: Educate citizens, landowners, and elected officials by providing materials and links on “Wisconsin’s Right to Farm” Law. Objective: Support other farming activities of niche farms, such as community supported agriculture, organic farms, orchards, working forest lands, tree farms, viticulture, aquaculture, community gardens, and hobby farms within the County. Program/Policy: Educate and inform municipalities of the various types of farming operations, and how these farms can be better supported. Objective: Encourage future generations of people to operate farms. Program/Policy: Protect agricultural infrastructure in Sheboygan County to support farm operations. Program/Policy: Support programs that help to keep productive farmland and ranchland in agricultural uses, such as the Farm and Ranch Land Protection Program. Program/Policy: Study and consider developing a County purchase of development rights (PDR) program, a transfer of development rights (TDR) program or a County agricultural easement program to protect parcels identified as high priority by the LESA analysis. Program/Policy: Continue to work with the UW-Extension and local schools to support youth farming related programs, as well as to develop an educational program that outlines grants and loans available through Federal and State agencies for youth programs, including 4-H Clubs and FFA. Program/Policy: Work with the UW-Extension to provide information to farmers on succession planning. Support mentor programs to assist beginning farmers. Program/Policy: Work with the UW-Extension and local organizations to develop and distribute a voluntary inventory of available farmland and agricultural-related assets. Objective: Maintain roads and other infrastructure, needed for agricultural activities. Program/Policy: Encourage revenue-sharing grants for roads and bridges. Policy/Program: Develop an inventory and rating system for local roads to identify those most likely to be used by farm operators to create a safe environment for travel between fields and everyday activities. Objective: Sustain the County’s agriculture heritage and character. Policy/Program: Develop methods to preserve the agricultural heritage of the County. Policy/Program: Encourage identification and preservation of historic structures. Policy/Program: Compile a list of the century farms in Sheboygan County. Objective: Develop an educational program for the real estate industry to better inform buyers of the processes involved with building/developing in the country and what to expect from a rural landscape.

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Goal 15: Protect soil and water resources through utilizing agricultural best management practices (BMPs) and other strategies. Objective: Encourage the use of the Best Management Practices by farmers. Policy/Program: Develop an educational program and distribute educational materials regarding farming techniques that promote soil conservation such as no till and zone tilling farming, rotational grazing, contour stripping, grass waterways, terracing, crop rotation, and nutrient management through soil sampling. This educational program focus should include local governments and individual farmers. Policy/Program: Work with UW-Discovery farms to provide information on best management practices and its research. Policy/Program: Work with LTC agricultural department on the Best Management Practices. Objective: Implement the Sheboygan County Land and Water Resource Management Plan. Policy/Program: Provide support, information, and application assistance for Federal and State programs, including County cost-sharing, to implement farming practices that promote soil conservation and water quality protection. Policy/Program: Continue to implement the County’s Animal Waste Management Ordinance, Chapter 77 of Sheboygan County’s Code of Ordinances. Policy/Program: Continue to support the County’s Water Quality Improvement Program (Buffer Strips), including County cost-sharing, especially in agricultural areas along waterways. Policy/Program: Continue to implement the County’s Erosion Control and Stromwater Management Ordinance, Chapter 75 of Sheboygan County’s Code of Ordinances. Policy/Program: Promote the benefits of reducing sediment and phosphorus loadings to surface waters. Policy/Program: Reduce soil erosion, using the objectives from the Sheboygan County Land and Water Resource Management Plan as a starting point to reduce the erosion. Policy/Program: The Land and Water Conservation Department shall continue to provide technical service and conservation planning assistance to landowners and units of government. Policy/Program: The Land and Water Conservation Department shall continue to provide technical assistance to the US Department of Agricultural and the Natural Resources Conservation Service for the Conservation Reserve Enhancement Program, Environmental Quality Incentive Program, and others. Policy/Program: Apply for grants that will help implement the programs in the Sheboygan County Land and Water Resource Management Plan. Policy/Program: Continue to provide staff to facilitate the implementation of the Sheboygan County Land and Water Resource Management Plan.

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Goal 16: Streamline the regulatory process and provide educational opportunities. Objective: Develop a broad countywide strategy that promotes interagency and intergovernmental cooperation involving agriculture. Policy/Program: Work with each Town to develop individual fact sheets to be given to land owners at the time permit issuance that include the process at the local level so landowners know what to expect. Policy/Program: Develop specific training for elected officials on current issues related to agriculture and land use law. Policy/Program: Support local “forums” for elected officials to provide education on agriculture and land use issues. Policy/Program: Work with neighboring municipalities, including neighboring counties, to have consistent standards and ordinances, where applicable.

Cultural Resource Goals, Objectives, Policies, and Programs

Goal 17: Identify and inventory areas of cultural, archaeological, architectural, and historical significance. Objective: Use local, state, and national criteria for identifying cultural, archaeological, architectural, and historical sites with unique historic characteristics of Sheboygan County. Policy/Program: Partner with local preservation groups to help to inventory the cultural, archaeological, architectural, and historical sites in Sheboygan County. Policy/Program: Map the cultural, archaeological, architectural, and historical sites on a Countywide level.

Goal 18: Support public engagement to help the local cultural, historical, archaeological, and architectural resources remain relevant to contemporary society. Policy/Program: The Sheboygan County Museum and other area organizations should continue to develop and host locally focused programs and events to highlight cultural resources in the County.

Goal 19: Protect and preserve the historical, cultural, archaeological, and architectural resources of the County, both past and present. Objective: Encourage the continued use of areas of historical and cultural heritage. Policy/Program: Encourage and explore funding to preserve the historical, cultural, archaeological, and architectural resources of the County. Policy/Program: Partner with local preservation groups to acquire cultural, archaeological, architectural, and historical sites in Sheboygan County.

Goal 20: Promote and support the local artistic culture. Objective: Encourage the local artistic culture. Policy/Program: Encourage the integration of local art in public places. Policy/Program: Identify and promote the local artistic resources (e.g. performing arts venues, galleries, museums, sculpture gardens, etc.

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Objective: Encourage the continued support of arts education programs in Sheboygan County. Policy/Program: Encourage the continued funding for arts programs in the local schools. Policy/Program: Encourage continuation of private art education programs, including those offered by the John Michael Kohler Arts Center.

Goal 21: Promote land use decisions that are sensitive to the local culture and history. Objective: Inform and educate citizens about the procedures for building on land that may be culturally or historically sensitive. Policy/Program: Facilitate community vision sessions to ensure the important aspects of a community’s character are addressed.

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5. Encouragement of land uses, densities, and regulations that promote efficient development patterns and relatively low municipal, state governmental, and utility costs. 6. Preservation of cultural, historic, and archeological sites. 7. Encouragement of coordination and cooperation among nearby units of government. 8. Building of community identity by revitalizing main streets and enforcing design standards. 9. Providing an adequate supply of affordable housing for individuals of all income levels throughout each community. 10. Providing adequate infrastructure and public services and an adequate supply of developable land to meet existing and future market demand for residential, commercial, and industrial uses. 11. Promoting the expansion or stabilization of the current economic base and the creation of a range of employment opportunities at the state, regional, and local levels. 12. Balancing individual property rights with community interests and goals. 13. Planning and development of land uses that create or preserve varied and unique urban and rural communities. 14. Providing an integrated, efficient, and economical transportation system that affords mobility, convenience, and safety and that meets the needs of all citizens, including transit-dependent and disabled citizens.

The Sheboygan County Comprehensive Plan shall be used by County officials when revising and administering its countywide ordinances, as well as when setting priorities for major investments. The Plan shall be a guide for reviewing future developments, constructing transportation improvements, and extending public services. The Plan is designed to be a guiding vision so that there is a consistent policy to follow and a clear goal for the future of the residents of Sheboygan County.

HISTORY AND DESCRIPTION OF PLANNING AREA Sheboygan County’s Comprehensive Plan is prepared under Wisconsin Statutes 66.1001 and is a legal document that is a guidance tool for both officials and citizens, to make decisions about future growth and development in the County over the next 20 years. This Comprehensive Plan marks the first comprehensive land use plan for Sheboygan County.

Sheboygan County covers an area of 513 square miles and is bordered by five counties: Manitowoc, Calumet, Fond du Lac, Washington, and Ozaukee, as well as Lake Michigan. The County has over 26.3 miles of coastal shoreline along Lake Michigan, and contains three major watershed areas that drain into the waters of Lake Michigan. Twenty-eight municipalities are within the County: three cities, ten villages and fifteen towns. Table 1-1 provides a listing of the County’s municipalities. Map 1-1 shows the location of Sheboygan County and its municipalities. The 2007 Wisconsin Department of Administration (WDOA) population estimate for the County was 117,045 persons.

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[Map 1-1: Sheboygan County Location]

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Sheboygan County is strategically located one hour north of Milwaukee, one hour south of Green Bay, and one hour east of the Fox River Valley. The western portion of the County is dominated by a rolling, glacial terrain (the Kettle Moraine) left by the Pleistocene (Ice Age). Eastern Table 1-1: Sheboygan County Sheboygan County is bordered by Lake Michigan. Municipalities These two very unique and undeniably beautiful Towns Villages landscape features create an exceptional setting for a Greenbush Adell number of recreational amenities that attract visitors, Herman Cascade seasonal residents, and long-term, permanent Holland Cedar Grove residents. This is one of the reasons why land use Lima Elkhart Lake planning plays a vital role in Sheboygan County. Lyndon Glenbeulah Mitchell Howards Grove History Mosel Kohler It is believed that in 1635 Jean Nicolet, the French Plymouth Oostburg explorer, was the first recorded white man to have Rhine Random Lake visited this location as he skirted the shores of Lake Russell Waldo Michigan heading south from Green Bay. The first Scott Cities recorded landing took place in 1699 when Fr. St. Sheboygan Plymouth Cosme, a missionary from Quebec, mingled with the Sheboygan Falls Sheboygan Potawatomi. Sherman Sheboygan Falls

Wilson This area was previously inhabited by Native Americans. Native American people, following their trail from Milwaukee to Green Bay, could always tell where they were when they reached the mouth of the Sheboygan River. They called this spot Schwab-we-way-kum, Native American terminology for “great noise underground.” The theory is that the rushing sounds of the falls upstream prompted this description and this is a generally accepted version of how Sheboygan got its name. In 1814 William Farnsworth was the first real settler of the area. He operated a sawmill, was a fur trader, a land speculator, a politician, and a businessman.

Sheboygan County has three birthdays. On December 7, 1836, an act of the territorial legislature detached the area from Brown County. This was less than a year after Wisconsin became a territory and nearly twelve years before it became a state. It was not until two years later, December 17, 1838, that the legislature passed a law organizing the County government and providing for the first election of officers, which was held on March 4, 1839. December 17, 1838 should properly be considered the county’s birthday. The City of Sheboygan was incorporated in 1853.

Sheboygan County’s boundaries have never changed from its original organization. The first town was the Town of Sheboygan, organized March 8, 1839, with its boundaries extending to those of the County. As new towns were formed, they were set off from the Town of Sheboygan. In early times Sheboygan County had a commission form of government. The governing body was a board of three commissioners elected by the people of the County at-large. The County has adopted the supervisor system and in 1965 there were 39 supervisory districts. This number has decreased to 34 in 1982 and is scheduled to decrease to 25 following the 2010 U.S. Census.

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Over 37 percent of the County’s workforce was employed in manufacturing-related industries in 2007, demonstrating the significance of manufacturing on the local economy. However, recent downturns and shifts in global production have led to a 7 percent decline in manufacturing jobs in Sheboygan County since 2000. It will be critical that Sheboygan County residents retain jobs.

A number of recent developments in the County are leading to a shift in the economic base and have the potential to shape the County’s economic future. Two world-class golf courses owned by Kohler Company, Whistling Straits and Blackwolf Run, and the Jack Nicklaus course, The Bull, are attracting golf enthusiasts from all over the world. The development of these golf courses has increased the traffic and use of the County’s airport and will have an impact on local infrastructure, as well as the economy in the future. The redevelopment of the 42-acre former C. Reiss Coal property in the City of Sheboygan includes Blue Harbor Resort and Conference Center and a 20-acre mixed-use development; this provides additional economic activities centered on tourism in Sheboygan County. In 2007 Sheboygan County ranked 9th in the state in the amount travelers spend. Sheboygan County has seen a 219 percent increase in traveler expenditures since 1994; this is the 6th largest growth in all Wisconsin counties since 1994.

Sheboygan County has not experienced levels of growth to the same extent as our neighbor to the south, Ozaukee County. However, given the increasing value of land and housing in the Milwaukee Metropolitan area, including Ozaukee County, and decreased travel times from various locations in Sheboygan County following the upgrade of State Highway 57 from two lanes to four lanes, it is anticipated that growth pressures in Sheboygan County may increase over the course of the next 5-10 years.

In light of the recent developments related to golf and resorts, international exposure of the community as a result of the PGA Championship in 2004 and U.S. Senior Open in 2006, and potential growth pressure from the Milwaukee Metropolitan Area, it is important to plan for resource protection now, rather than react to it when it is too late. Though actual population projections indicate that the County will have a growth rate of about 6 percent in the next 10-20 years, it is difficult to predict whether or not these projections are accurate or what pressures the additional resort and leisure amenities will have on the County’s resources.

PLANNING PROCESS Sheboygan County’s Comprehensive Planning Process started in October 2001 when the first smart growth planning workshop was held. The County realized that plans needed to be completed, so the Planning Department and UW-Extension partnered together to inform local municipalities about comprehensive plans, what was required and possible funding options for the plans. The County was very proactive in helping local municipalities begin the planning process. The County held workshops and informational sessions to provide local municipalities with information and tools to help in the process. In April 2002 the Resources Committee of the County Board approved funding for municipalities’ plans through the County’s Stewardship Fund Grant Program. The County and UW-Extension also helped to work with cluster communities to begin their comprehensive planning process. Some of the municipalities were so eager to meet the State requirements that they (Cities of Plymouth and Sheboygan and Village of Cedar Grove) adopted their plans by 2003.

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Along the way, the county planning department produced a multitude of plans to help in the development of this Comprehensive Plan. In 2004 the County Board of Supervisors adopted the Sheboygan County Natural Areas and Critical Resources Plan; in 2005 the County Board of Supervisors adopted the Sheboygan County Farmland Preservation Plan; and in 2007 the County Board of Supervisors adopted the Sheboygan County Pedestrian & Bicycle Comprehensive Plan 2035; and Sheboygan County’s Outdoor Recreation and Open Space Plan-2007. All of these plans had committees, citizen involvement on Table 1-2: Committees Involved in the Planning Efforts the committee (Table Sheboygan County Smart Growth-Stewardship Technical Committee 1-2) and other public Sheboygan County Smart Growth-Stewardship Advisory Committee input opportunities. Sheboygan County Agriculture Planning Committee These plans and their Outdoor Recreation Planning Ad Hoc Committee recommendations will Citizens Advisory and Technical Committee be utilized in the Smart Growth Implementation Committee completion of this Plan. Source: Sheboygan County Planning Department

Consistency Most of the municipalities in Sheboygan County have used the Bay-Lake Regional Planning Commission template, which allows consistency in the planning process. Another way in which there is consistency between all the municipalities’ plans is that most municipalities had their maps created by Sheboygan County’s Planning and Resources Department. The County has developed a Smart Growth Implementation Committee that will look for inconsistencies between the adopted plans and recommend ways to resolve disputes.

PUBLIC PARTICIPATION IN THE COMPREHENSIVE PLANNING PROCESS Sheboygan County’s comprehensive planning process is committed to providing broad based and regular opportunities for public participation throughout the planning process. The process is designed to be responsive to citizen participants, is committed to utilizing the knowledge and understanding of citizens to address important issues and offers multiple opportunities for engagement – at varying levels of involvement. The purpose of the Public Participation Plan is to describe how the public may be involved throughout the County’s entire comprehensive planning effort. Prior to the adoption of Common Visions: Sheboygan County Comprehensive Plan, an effort will be made to make residents aware that the County is creating a comprehensive plan and that there is public participation involved in its creation. The adopted Public Participation Plan is included in Appendix 1. Highlights from this plan are included subsequently, but are not meant to be all-inclusive.

• Creation of the Smart Growth Implementation Committee The Smart Growth Implementation Committee (SGIC) will help in the entire planning process, as members assist in the development of a County-wide survey, identify land use conflicts, look for consistency in municipalities’ plans, review Sheboygan County’s Comprehensive Plan, and provide support in other ways throughout the process. Members will consist of people with technical expertise, citizens and representatives from local municipalities.

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Sheboygan County Comprehensive Plan Adopted

• Public Input at Smart Growth Implementation Committee Meetings There will be an opportunity for public input at the beginning of each SGIC meeting. During these times local citizens can speak about local planning-related issues.

• Reporting on Smart Growth Implementation Committee Meetings/Progress at Planning, Resources, Agriculture, and Extension Committee Meetings Activities of the SGIC will be reported on at the Planning, Resources, Agriculture, and Extension Committee Meetings.

• Minutes of Smart Growth Implementation Committee Meetings The SGIC and the Sheboygan County Planning, Resources, Agriculture, and Extension Committee will publicly post their meeting minutes which will include information on the comprehensive planning process.

• County-wide Statistical Survey The County will be sending out a survey to random households that will be statistically significant. This survey will be used to gauge the attitudes and concerns of the citizens of Sheboygan County.

• Articles in Community Newsletter/Newspapers Articles in the The Sheboygan Press, The Plymouth Review, and possibly other County newspapers will be used for public awareness and education about planning and planning activities.

• Community Visioning The County worked with the SGIC and UW-Extension to identify the vision and goal statements for the County. These vision and goals will ultimately guide the Comprehensive Plan recommendations.

• Sheboygan County Website During the planning process, the County will use its website (http://www.co.sheboygan.wi.us/html/d_planning.html) to post the Comprehensive Plan and planning process information to be available to the public. This information may include the project schedule, meeting agendas and minutes, draft plan elements and reports, maps, photographs, and survey results. The website will serve as a link to residents on the planning activities of the SGIC. Residents will be able to provide input and written comments on the plan and the planning process to County staff and committee members via an email link on the website.

The final draft of the plan and final adopted version of the plan will be distributed as required by Chapter 66.1001 of the State Comprehensive Planning Law. The draft and final version of the plan will also be placed on the website in order to provide residents access and to receive resident input.

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Sheboygan County Comprehensive Plan Adopted

• Utilize Public Input Gathered from other Planning Efforts The County will also use previous plans which have included elements of public input. These plans each had committees working to develop the plans and other public input opportunities.

• Open Houses Sheboygan County will hold open houses throughout the County to answer questions and provide opportunities for citizens to review and comment on the Comprehensive Plan during the public review period.

• Public Hearing and Written Comments for Plan Adoption Sheboygan County will hold a public hearing on the final draft of the Comprehensive Plan. This hearing will have a Class 1 Notice in the County’s official newspaper, The Plymouth Review. The Planning, Resources, Agriculture, and Extension Committee will meet to review public comments on the final draft of the plan and make a recommendation to the County Board for adoption. Written comments on the plan will be taken from the public for a minimum of 30 days prior to the public hearing. These comments may be sent to the Planning & Resources Department, 508 New York Ave., Sheboygan, WI 53081 or emailed through the link provided on the Planning Department website. These comments will be made available for the public to view. Official responses to certain significant issues that are not already addressed in the Comprehensive Plan will be posted publicly for review. Adoption of this Comprehensive Plan shall be enacted by ordinance and comply with Section 66.1001 of Wisconsin State Statutes.

VISIONING Sheboygan County’s a Vision Subcommittee was made up of members from the Smart Growth Implementation Committee. These members used the citizen input survey, as well as, their own knowledge of the area to create the County’s vision statement for the Comprehensive Plan. The draft vision statement was then brought before the Smart Growth Implementation Committee, who made comments. After adjustments were made, the Smart Growth Implementation Committee recommended approval of the vision statement. The vision statement was then approved by the Planning, Resources, Agriculture, and Extension Committee of the County Board. The vision statement that was approved for the County’s Comprehensive Plan is as follows:

“Sheboygan County envisions the Smart Growth Plan to be a living document responsive to the changing needs of its citizens and fostering intergovernmental cooperation through reference to a compilation of local land use plans.

From Lake Michigan to the Kettles, from the cities to the farms, our County has a rich heritage. We enjoy an attractive combination of rural, urban, and semi-urban areas. Our unique location provides many opportunities for employment, housing, education, recreation, transportation, or agri-business.

The Smart Growth Plan will promote balanced development with the preservation and protection of our natural, scenic, agricultural, economic, and cultural resources. Through the Smart Growth Plan, we will retain our character and unique identity, while enhancing the quality of life for all citizens in the County.”

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Sheboygan County Comprehensive Plan Adopted

Although the County has an overall vision statement, most municipalities also have completed vision statements with their comprehensive plan. Below are the Comprehensive Plan vision statements for the municipalities within Sheboygan County.

Town of Greenbush “We envision the Town of Greenbush as a predominately open/green space, agricultural area with scattered single family residences carefully sited to preserve the rural, country atmosphere and aesthetic value of the Town. Our natural environment provides both opportunities and challenges now and in the future and will continually require sound planning to ensure its protection and wise use.”

Town of Herman “We envision the Town of Herman as a predominantly rural, agricultural area and place a high value on the preservation of farmland. To maintain harmony, carefully sited new single-family residences and small home businesses each year will be acceptable. Intergovernmental cooperation will continue to be important in helping to provide quality services for Town residents at a reasonable cost.”

Town of Holland-Draft “The Town of Holland’s future vision is to promote long-term development that enhances the rural atmosphere of the community by maintaining agricultural land and the farming industry; preserving the landscape’s natural features and open space; promoting the community’s heritage; and guiding attractive, high-quality public and private investment.”

Town of Lima-Draft “We envision the Town of Lima as an area dominated by agriculture in harmony with a strong natural resource base. Situated between the two communities of Sheboygan Falls and Oostburg, the town does and will continue to provide a safe, quiet country atmosphere with friendly people. To preserve and maintain its uniqueness, careful planning is essential for continued slow, managed growth.”

Town of Lyndon “The Town of Lyndon is a progressive community that promotes organized development while preserving its rural small town character. Defined by its vast farmlands, woodlands, open spaces, and natural resources, Lyndon directs residential, commercial, and industrial growth in a reasonable fashion that discourages urban sprawl, and allows landowners a variety of land uses on their property. Through the implementation of the town’s Comprehensive Plan and a close working relationship with the villages of Waldo and Cascade, Sheboygan County and other neighboring towns-Lyndon continues to be proactive in planning for growth, while preserving and enhancing the rural atmosphere enjoyed by past and present generations.”

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Sheboygan County Comprehensive Plan Adopted

Town of Mitchell “The Town of Mitchell will continue a slow, planned development as a mixed residential/farm community with limited commercial and industrial development. Growth of residential development is expected to be on larger lots, lots not served by municipal sewer or water, and to result in the loss of some farmland. Agricultural uses are expected to move away from the traditional dairy farming towards niche/specialty farming or hobby farms. Commercial development in the Town is expected to be primarily from home based businesses that while generally unobstrusive can come into conflict with neighbors. The Town of Mitchell is desirous of establishing the minimum amount of regulations that would balance private property rights with the overall community’s health and welfare including a farmer’s right to farm.”

Town of Mosel “We envision the Town of Mosel as a mixed agricultural/residential community with an emphasis on the preservation of farmland. We value a country atmosphere that is quiet, friendly, and safe. Our unique natural and man-made features pose both opportunities and challenges now and in the future. Intergovernmental cooperation will continue to be important in helping provide quality services for Town residents at a reasonable cost.”

Town of Plymouth-Draft

“We envision the Town of Plymouth as a community with a safe, quiet, rural country atmosphere. Our town values a blend of carefully planned single-family residences, scenic agricultural land and open/green space. Our easy access to the Kettle Moraine State Forest, City of Plymouth and great employment opportunities, provides our Town with a high quality of life. We consider our farmland and open-spaces to be valuable assets and encourage careful planning and preservation to ensure they are used wisely. While continuing to plan efficiently, intergovernmental cooperation, especially with the City of Plymouth, will be essential.”

Town of Rhine-Draft “We envision the Town of Rhine as a community with a blend of agriculture, open/green space, and single-family residences in harmony with a quality natural resource base. We value a quiet, rural country atmosphere. Rhine residents consider the natural environment comprised of glacial terrain and lakes to be a great asset and encourage careful planning to ensure it is used wisely. Intergovernmental cooperation will be important in this planning.”

Town of Russell “We envision the Town of Russell as a community with a blend of agriculture, open/green space, and single-family residences in harmony with a quality natural resource base. We value a quiet, rural country atmosphere. Town of Russell residents consider the natural environment comprised of glacial terrain and lakes to be a great asset and encourage careful planning to ensure it is used wisely. Intergovernmental cooperation will be important in this planning.”

Town of Scott-Draft “We envision the Town of Scott as a family friendly community with a blend of agriculture, open/green space, and single-family residences in harmony with a quality natural resource base. We value a rural country atmosphere that is safe and serene. Town of Scott residents consider the natural environment to be a great asset for farming, recreation, and overall quality of life and encourage careful planning to ensure its protection and wise use.”

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Sheboygan County Comprehensive Plan Adopted

Town of Sheboygan-Draft “We envision the Town of Sheboygan as a quiet, ideally located community within Sheboygan County. We value a blend of open/green space, single-family residences and unique emerging businesses in harmony with our high-quality natural resource base. We consider our open-spaces, natural resources and managed/responsible growth to be great assets and encourage careful planning in their management. To continue to offer high quality services with relatively low taxes, intergovernmental cooperation, especially with neighboring municipalities, will be very important.”

Town of Sheboygan Falls-Draft “We envision the Town of Sheboygan Falls as an agricultural community with a quiet, rural country atmosphere. We consider our farmland, open-space and river corridors to be great assets and encourage preservation and careful planning to ensure they are used wisely. Future residential and business development will take these assets into account. While continuing to plan efficiently, intergovernmental cooperation will be essential, especially with other units of government.”

Town of Sherman “We envision Sherman as a predominately open space, agricultural area surrounding small villages. Sherman residents consider the land to be great natural asset and encourage careful planning to ensure the land is used wisely. Intergovernmental cooperation will be important in this planning.”

Town of Wilson “Wilson’s visionary government and community leaders have planned ahead to ensure the town is well-prepared to meet the growing needs of its residents and businesses while preserving and enhancing natural qualities of the land through implementation of this comprehensive plan.”

Village of Adell “We envision Adell as a small village surrounded by a predominately open space/agricultural area. Adell residents value a small town, neighborly atmosphere. We seek continued quality basic services, partnering with surrounding communities when beneficial.”

Village of Cascade-Draft “We envision Cascade as a family-oriented, moderately growing village with small community atmosphere. We value our school and neighborhoods that are safe. Our village will continue to provide affordable services to a mix of residences and small retail businesses that make Cascade a great place to live, work, and play.”

Village of Cedar Grove They do not have an overall vision statement in their comprehensive plan, but they do have community vision guideline:

“This plan is intended to capture a shared vision for the Village. It is a statement reflecting community pride and how residents want the Village to manage growth and development in the

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future. It will help elected officials make decisions reflecting the short- and long-term wished of the community. It will help prioritize the Village’s human and financial resources so it can provide the necessary public infrastructure and amenities needed to maintain a high quality of life. It will also help to foster a sustainable economy that is in keeping with its rural character.”

Village of Elkhart Lake-Draft “We envision the Village of Elkhart Lake as a small village with unique historic character, slow, but steady growth, and a high quality of life enjoyed by both residents and visitors. We value a small community atmosphere that is safe and serene. We consider the lake and surrounding natural environment to be our greatest assets and encourage careful planning to insure that it is used wisely. Tourism will play a key role in our community’s future.”

Village of Glenbeulah “We envision Glenbeulah as a small, family-oriented moderately growing village with a mix of residences and small businesses that projects a positive aesthetic appearance. Glenbeulah residents value a small community atmosphere that is quiet and safe. We consider the Mill Pond and surrounding natural environment to be great assets.”

Village of Howards Grove “We envision Howards Grove as a low density, moderately growing village with well-kept, primarily single-family residential and sufficient businesses to meet local needs. Howards Grove residents value a quiet, friendly atmosphere. We consider the parks and green space to be assets. We seek continued quality basic services, partnering with surrounding communities when mutually beneficial.”

Village of Kohler “The Village of Kohler desires to remain one of Wisconsin’s finest “planned communities” by growing in an intentional and planned manner that will preserve and enhance its “Village” atmosphere, high quality of life, and natural assets.”

Village of Oostburg-Draft “We envision Oostburg as a moderately growing village with small community atmosphere, charm, and family values. We value our churches and neighborhoods that are safe and serene. Our village will continue to provide quality services to an appropriate mix of well-kept residences, businesses and industries that make Oostburg a great place to live, work and play.”

Village of Random Lake “We envision Random Lake as a moderately growing village surrounded by a mix of agricultural/residential area. Random Lake residents value a friendly, small town atmosphere. We consider the lake to be a great asset and we care about community appearance. Partnering with surrounding communities when beneficial, the village will continue to provide quality basic services to a mix of residences, businesses, and acceptable industries.”

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Village of Waldo-We envision Waldo as a moderately growing village surrounded by a mix of agricultural/residential area. We consider the Waldo Mill Pond to be a great asset and we intend to preserve it for generations to come. Through a coordination strategy (that Waldo is equal to and not subordinate to other units of government) Waldo looks forward to working with other units of governments in dealing with the issues of today and issues yet to come

City of Plymouth They do not have an overall vision statement in their comprehensive plan, but they do have vision elements: ƒ A revitalized Downtown Plymouth with a full array of commercial, office, park, and entertainment uses. Many of these uses are located in the district’s well-preserved historic buildings. ƒ An adopted comprehensive plan that was creative, forward thinking and provided real strategies that were implemented. ƒ An improved transportation system in the community that was achieved through thoughtful street layout design and consideration of traffic flow with each new development. ƒ An enhanced mill pond and Mullet River waterfront area that attracts residents and visitors alike to the downtown area. ƒ A fully developed bike and pedestrian network that connects the Downtown to surrounding neighborhoods, schools, parks, and commercial areas. ƒ An attractive gateway into the community, which was achieved through high-quality site design standards for all commercial and industrial development.

City of Sheboygan They do not have an overall vision statement in their comprehensive plan, but they do have a statement of overall planning objectives:

The overall focus of this plan is to provide the best possible balance between the quality of life and the cost of living. The ability to reach this goal results from a combination of long-term planning strategies that establish the community’s vision, and the day-to-day decisions made by the Plan Commission and Common Council in reviewing development proposals and making public investment decisions the generally forward or constrain this vision. The Communities that are most successful in reaching the highest possible quality of life at the most reasonable cost of living share three common strengths:

• They envision a potential future that is both creative and realistic. • They identify critical opportunities and challenges as early as possible. • They develop a systematic approach for implementing planning objectives through broad-based channels and strategically targeted special initiatives.

The intent of this Plan is to coordinate planning policies and mapped recommendations to attain these strengths.

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City of Sheboygan Falls-Draft “Sheboygan Falls strives to be proactive in planning for growth, while preserving its historic heritage for future generations in a friendly, safe, family environment. We offer residential, commercial and industrial growth that maintains a high quality of life for all. We value our downtown historic district promoting a mix of retail, office and service uses. A key asset will be a bike and pedestrian network connecting neighborhoods, schools, parks and commercial areas. Tourism will play an increasing role in our community’s future, and we will continue to cooperate with neighboring towns, villages and Sheboygan County to achieve these objectives.”

GOALS, OBJECTIVES, POLICIES, AND PROGRAMS Goals are broad statements that reflect the vision of a community (where do we want to be 10-20 years from now?). Objectives define goals with practical, concrete and specific terms (what will it look like when we get there?). Policies focus the intent of the governing body on moving forward (we’re committing to getting there). Programs describe specific actions that should take place (here’s how we get there). All goals, objectives, policies and programs throughout the Plan refer to the County undertaking the action/task, unless otherwise noted.

Final Goal statements for Sheboygan County, as well as Objectives, Policies, and Programs for “Agriculture, Natural & Cultural Resources,” “Housing,” “Economic Development,” “Transportation,” “Utilities & Community Facilities,” “Intergovernmental Cooperation,” and “Land Use” can be found in Chapter 9 and in the respective chapters dedicated to each of these elements.

BACKGROUND INFORMATION/DEMOGRAPHICS The next few pages include data and a brief analysis of the basic demographic data for Sheboygan County. More detailed and other demographic and background information such as employment, housing, and education data will be found in subsequent chapters, as well as in Appendix 2-Sheboygan County Background and Inventory Report, which is a compilation of data from the U.S. Census Bureau, Wisconsin Department of Workforce Development (WI DWD), and the Wisconsin Department of Revenue (WI DOR). This data is broken down into a multitude of categories: State of Wisconsin, Sheboygan County, individual municipalities, cities, villages, towns, urban towns, and rural towns.

Population Sheboygan County’s population was estimated by the Department of Administration (WDOA) to be at 117,045 in 2007. Figure 1-1 shows that over the past 58 years, Sheboygan County has experienced strong population growth with the addition of 36,414 people. Between 1990 and 2000, the County added nearly 8,800 residents, for a growth rate of 7.8 percent. This is the second largest influx of people to Sheboygan County in a 10-year period, behind only the decade of 1960-1970 when 10,176 people were added.

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Figure 1-1: Sheboygan County Historic Population Trends

Sheboygan County Historic Population Trends 112,656 120,000 103,877 96,660 100,935 86,484 100,000 76,221 80,631 80,000 Number of 60,000 People 40,000

20,000 0 1940 1950 1960 1970 1980 1990 2000 Population Year Source: Wisconsin Department of Administration; Sheboygan County

The State of Wisconsin has grown at a faster rate in every decade than Sheboygan County, with the State of Wisconsin experiencing the largest percent change in growth from 1950 to 1960. Sheboygan County experienced its highest rate of growth between 1960 and 1970. This can be seen in Figure 1-2.

Figure 1-2: Sheboygan County & State of Wisconsin Population Change Over Time

Sheboygan County & Wisconsin

Historic Growth Trends

16 Sheboygan County 14 State of Wisconsin 12 10 8

Growth 6

4 Percent Change in 2 0 1940- 1950- 1960- 1970- 1980- 1990- 2000- 1950 1960 1970 1980 1990 2000 2005

Year

Source: Wisconsin Department of Administration

The city with the largest population growth by number of people continues to be Sheboygan, but other areas of the County have taken a greater share of the population. This means that even though the City of Sheboygan gained over 10,000 people from 1940 to 2000, an increase of 20 percent of its population, the Village of Oostburg’s population grew by 72 percent from 1940 to 2000. Figures 1-3, 1-4, and 1-5 show the changes in the population breakdown of Sheboygan County in 1940, 1970, and 2000. By looking at the pie charts, one can see that Howards Grove has a much larger piece of the pie today than in 1940. In 1940, the Village made up an indiscernible portion of the County’s population, but in 2000 the Village’s population made up

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2.5 percent of the County’s total population. Another interesting observation is that the Town of Sheboygan’s share of Sheboygan County’s population decreased between 1940 and 1970, but has once again increased from 1970 to 2000. As the City of Sheboygan’s share of the overall population declines between 1940 and 2000, the Cities of Plymouth and Sheboygan Falls share of the population has increased. The Town of Sheboygan Falls has seen almost a 1 percent drop in its share of the County population since 1970. The Town of Wilson’s share of the population increased between 1940 and 1970, but decrease between 1970 and 2000. The Towns of Herman and Mosel have also seen decreases in their shares of the County’s population. One possible explanation for these decreases may be due to the annexations that are occurring from the nearby cities and villages. All Sheboygan County municipalities’ historic populations can be seen in Appendix 2-Sheboygan County Background and Inventory Report.

Figure 1-3: Sheboygan County Population, 1940

Sheboygan County Population - 1940

T Greenbush T Lyndon T Mitchell T Plymouth T Greenbush T HermanT Holland T Herman 1.4% 1.1% 1.9% 1.5% 2.5% 2.6% T Lima T Holland C Sheboygan 2.3% T Rhine T Lima T Mosel T Lyndon Falls 1.5% 1.1% T Mitchell 4% T Russell T Mosel 0.6% T Plymouth T Scott T Rhine 1.5% T Russell T Sheboygan Falls T Scott 2.2% T Sheboygan T Sherman V Adell T Sheboygan Falls 1.3% T Sheboygan T Sherman 0.4% 5.7% T Wilson T Wilson V Cascade 1.7% V Adell 0.5% V Cas cade V Cedar Grove V Cedar Grove C Sheboygan 1.2% V Elkhart Lake 53.3% V Elkhart Lake V Glenbeulah 0.7% V Howards Grove V Glenbeulah V Kohler 0.5% C Plymouth V Oos tburg V Howards Grove V Random Lake 5.5% 0.0% V Waldo V Oostburg C Plymouth V Kohler C Sheboygan 1.0% V Waldo 2.3% C Sheboygan Falls 0.4% V Random Lake 0.8%

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Sheboygan County Comprehensive Plan Adopted

Figure 1-4: Sheboygan County Population, 1970 Sheboygan County Population - 1970 T Herman T Holland T Greenbush T Greenbush T Lyndon T Mitchell 2.1% 2.4% T Herman 1.6% T Lima 1.2% 0.8% T Mosel T Holland 2.7% 1.2% T Lima C Sheboygan Falls T Rhine T Lyndon 4.9% T Plymouth 1.4% T Mitchell 2.4% T Mosel T Russell T Plymouth T Scott 0.5% T Rhine 1.5% T Russell T Scott T Sheboygan Falls 2.4% T Sheboygan T Sheboygan T Sheboygan Falls 4.4% T Sherman T Wilson T Sherman 1.5% 3.4% T Wilson V Adell V Adell V Cas cade C Sheboygan 0.4% V Cascade V Cedar Grove 50.2% 0.6% V Elkhart Lake V Cedar Grove V Glenbeulah 1.3% V Howards Grove V Elkhart Lake 0.8% V Kohler C Plymouth V Oos tburg 6.0% V Glenbeulah V Random Lake 0.5% V Waldo V Howards Grove C Plymouth V Oostburg 1.0% C Sheboygan V Waldo 1.4% C Sheboygan Falls V Kohler 0.4% V Random Lake 1.8% 1.1%

Figure 1-5: Sheboygan County Population, 2000

Sheboygan County Population - 2000 T Greenbush T Holland T Lima T Mitchell T Herman T Greenbush T Herman T Lyndon 2.1% 2.6% 1.0% T Holland 2.5% 1.8% 1.3% T Lima C Sheboygan Falls T Mosel T Plymouth T Lyndon 6.0% 0.7% 2.8% T Mitchell T Mosel T Rhine T Russell T Plymouth 2.0% 0.4% T Rhine T Russell T Scott T Scott 1.6% T Sheboygan T Sheboygan Falls T Sheboygan Falls 1.5% T Sherman T Sheboygan T Sherman T Wilson 5.2% 1.3% V Adell T Wilson V Cas cade C Sheboygan 2.9% V Adell V Cedar Grove 45.1% 0.5% V Elkhart Lake V Cascade V Glenbeulah 0.6% V Howards Grove V Cedar Grove V Kohler 1.7% V Oos tburg V Elkhart Lake V Random Lake 0.9% C Plymouth V Waldo V Glenbeulah 6.9% C Plymouth 0.3% C Sheboygan V How ards Grove C Sheboygan Falls V Oostburg 2.4% 2.5% V Kohler V Waldo V Random Lake 1.7% 0.4% 1.4% 1-17

Sheboygan County Comprehensive Plan Adopted

Figure 1-6: Sheboygan County Population Breakdown by Type of Government, 1940

1940 Population 45,000 40,000 35,000 53.5% Rural Tow ns 30,000 Urban Tow ns* Villages 25,000 City of Plymouth 20,000 21.7% City of Sheboygan

Population 15,000 City of Sheboygan Falls 10,000 7.4% 7.4% 5,000 5.5% 4.5% 0

ls ns* outh al llages F ow i ym T V heboygan S rban f boygan Rural Towns ty of Pl U he Ci ity o f S C o y it Communities C

Source: U.S. Census Bureau *Urban Towns (Wilson and Sheboygan)

Figure 1-7: Sheboygan County Population Breakdown by Type of Government, 1970

1970 Population 50,000 45,000 50.2% Rural Tow ns 40,000 Urban Tow ns* 35,000 Villages 30,000 City of Plymouth 25,000 21.7% City of Sheboygan 20,000 City of Sheboygan Falls Population 15,000 7.8% 9.4% 10,000 6.0% 5,000 4.9% 0

h ns* out alls lages F Towns ym Tow Vil l P ygan ban of Rural r y U it C hebo S City of Sheboyganof y it Communities C

Source: U.S. Census Bureau *Urban Towns (Wilson and Sheboygan)

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Figure 1-8: Sheboygan County Population Breakdown by Type of Government, 2000 2000 Population 55,000 50,000 45,000 45.1% Rural Tow ns 40,000 Urban Tow ns* 35,000 Villages 30,000 City of Plymouth 25,000 21.6% City of Sheboygan 20,000 City of Sheboygan Falls Population 12.3% 15,000 8.1% 10,000 6.9% 6.0% 5,000 0

* lages ygan Towns il Towns V hebo ban S Rural r of U y City of Plymouthit C Communities City of Sheboygan Falls

Source: U.S. Census Bureau *Urban Towns (Wilson and Sheboygan)

Not only does one need to analyze the total population changes, it is also helpful to look at population trends based on gender. The trend in changes in gender-specific population in Sheboygan County is unlike that of the United States and Wisconsin. In Sheboygan County the population of males has increased at a faster rate over the last 16 years compared to the population of females. But, the percent composition of Sheboygan County’s total population of each gender remains nearly identical (see Table 1-3). At the state level, the female population has increased at a faster rate than the male population, though the percent of females is only about one percent greater than the percent of males.

Table 1-3: Sheboygan County Population and Gender Trends (1990-2006) 1990 2000 2007** Male (number, percentage) 51,391 (49.5%) 56,503 (50.2%) 57,541 (50.1%) Female (number, percentage) 52,486 (50.5%) 56,143 (49.8%) 57,215 (49.9%) Total 103,877 112,646 114,756 Source: U.S. Census Bureau & *2007 WDOA Estimates

According to the WDOA population projections released in 2004, Sheboygan County’s population, as a whole, from 2000-2030 is expected to increase by 20,375 persons, or by at least 18 percent. The individual municipalities are each projected to grow at different rates (projections are only available from 2000-2025 for municipalities), with some municipalities expected to see a decrease in their population. The Town of Sheboygan’s population is expected to see an increase of 3,485 people or 59.3 percent increase in its population from 2000 to 2025, the largest in the County, while over that same time period the Town of Mosel’s population is anticipated to have the greatest loss of population at 18.2 percent. The City of Sheboygan, which holds the largest percent of the population, is expected to gain 1,784 people, which is numerically less than three other municipalities. These numbers are just projections and many different factors, such as changes in municipal boundaries, housing availability, and economic 1-19

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development can have a substantial affect on population trends. For example, the Town of Mosel will be host to future high-profile golf events which have the capability to alter the population projections. Table 1-4 shows the population projections for all municipalities within Sheboygan County. These projections are important because they help to assess the area’s future need for housing, community facilities, transportation, and other population-related facilities.

Table 1-4: Population Projections Type and Name of Census Projections* Municipality Percent Population Change 1990 2000 2005 2010 2015 2020 2025 2030** 2000-2025 T GREENBUSH 1,849 2,619 2,649 2,677 2,709 2,743 2,773 N/A 5.9% T HERMAN 1,820 2,044 2,140 2,236 2,334 2,435 2,534 N/A 24.0% T HOLLAND 2,567 2,360 2,368 2,373 2,382 2,392 2,399 N/A 1.7% T LIMA 2,715 2,948 3,029 3,115 3,206 3,300 3,389 N/A 15.0% T LYNDON 1,432 1,463 1,508 1,552 1,598 1,646 1,692 N/A 15.7% T MITCHELL 1,038 1,286 1,380 1,474 1,570 1,668 1,764 N/A 37.2% T MOSEL 918 839 809 778 747 717 686 N/A -18.2% T PLYMOUTH 2,911 3,115 3,249 3,388 3,532 3,679 3,823 N/A 22.7% T RHINE 2,235 2,244 2,313 2,381 2,453 2,526 2,597 N/A 15.7% T RUSSELL 362 399 403 407 412 417 421 N/A 5.5% T SCOTT 1,671 1,804 1,870 1,935 2,003 2,072 2,140 N/A 18.6% T SHEBOYGAN 3,866 5,874 6,534 7,226 7,932 8,648 9,359 N/A 59.3% T SHEBOYGAN FALLS 1,908 1,706 1,682 1,656 1,633 1,610 1,585 N/A -7.1% T SHERMAN 1,461 1,520 1,533 1,544 1,558 1,573 1,585 N/A 4.3% T WILSON 2,931 3,227 3,384 3,541 3,703 3,869 4,031 N/A 24.9% V ADELL 510 517 515 513 512 510 509 N/A -1.5% V CASCADE 620 681 678 675 673 671 668 N/A -1.9% V CEDAR GROVE 1,521 1,887 2,010 2,132 2,257 2,385 2,511 N/A 33.1% V ELKHART LAKE 1,019 1,021 1,039 1,057 1,076 1,096 1,115 N/A 9.2% V GLENBEULAH 386 378 369 359 350 341 332 N/A -12.2% V HOWARDS GROVE 2,329 2,792 2,997 3,201 3,410 3,624 3,834 N/A 37.3% V KOHLER 1,817 1,926 1,993 2,058 2,127 2,197 2,265 N/A 17.6% V OOSTBURG 1,931 2,660 2,889 3,117 3,351 3,588 3,823 N/A 43.7% V RANDOM LAKE 1,439 1,551 1,606 1,661 1,718 1,776 1,833 N/A 18.2% V WALDO 442 450 456 462 469 475 482 N/A 7.1% C PLYMOUTH 6,769 7,781 8,346 8,902 9,473 10,054 10,627 N/A 36.6% C SHEBOYGAN 49,587 50,792 51,171 51,473 51,836 52,243 52,576 N/A 3.5% C SHEBOYGAN FALLS 5,823 6,772 7,150 7,518 7,897 8,285 8,665 N/A 28.0% SHEBOYGAN COUNTY TOTALS 103,877 112,656 116,070 119,411 122,921 126,540 130,018 133,031 18.1% *Wisconsin Department of Administration Population Projections **The WDOA had not completed population projections for individual municipalities for 2030; they have only completed them for Counties.

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Figure 1-9 illustrates four different population projections. The first is the population projection created by the WDOA, the second is a linear projection created by Bay-Lake Regional Plan Commission in 2003, the third projection is a growth trend created by Bay-Lake Regional Plan Commission in 2003, and the final projection is called the Share of County projection and was created by Bay-Lake Regional Plan Commission in 2007. This projection method is more complicated than the linear or growth trends. This model takes the official WDOA population projections for each county and then allocates them back to each municipality based on its share of the county’s population based on the most recent population estimates.

The WDOA projection shows an 11.4 percent rate of growth of the County from 2010 to 2030; the Share of County projection shows a 14.6 percent rate of growth from 2010-2030, whereas, the other two projections show a rate of growth between 8.1 and 10.2 percent. The current rate of growth of Sheboygan County has been only 6 percent, and is projected to be only about 6 percent from 2010 to 2020. This could mean the WDOA and Share of County projections are higher than what the actual population growth will be. Population projections can change because unexpected events can occur that may impact the County.

Figure 1-9: Sheboygan County Population Projections

Sheboygan County Population Projections

140000 137384 135000 130508 133031 130000 128745 123385 126540 125000 122614 126435 120000 119411 121345 116776 WDOA Projections 115000

Population 112646 116255 BLRPC-Linear Projections-2003 110000 BLRPC-Grow th Trend-2003 105000 BLRPC- Share of County-2007 103877 U.S. Census Population 100000 1990 2000 2010 2015 2020 2025 2030 2035 Year

Source: Wisconsin Department of Administration, 2004; Bay-Lake Regional Plan Commission, 2004 & 2007.

Age Distribution The U.S. Census Bureau indicates that the median age of Sheboygan County residents has risen from 30.3 in 1980 to 36.8 in 2000. This shows an average increase of 3.25 years every decade. Residents of Sheboygan County are getting older, which is the trend nation-wide as the baby boomers continue to age. Figure 1-10 shows the age distribution for Sheboygan County over time.

Although the working age population (16 and above) has realized over a 22 percent increase since 1980 and a 13 percent increase since 1990, a large portion of this working age group will be retired or near retirement within the 20-year timeframe of this Plan. As the population 1-21

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continues to age and retire, it is necessary to ensure that the social and economic support networks are in place for a comfortable retirement and to ensure an adequately educated and prepared workforce is ready to replace them.

Figure 1-10: Age Distribution of Sheboygan County

Age Distribution of Sheboygan County 20,000 18,000 1980 16,000 1990 14,000 12,000 2000 10,000 8,000 6,000 4,000 Number of People of Number 2,000 0

s s s s s s s s s s s s p r r r r r r r r r r r r u y y y y y y y y y y y y d 5 9 4 9 4 4 4 4 9 4 4 4 1 1 2 3 4 5 5 6 7 8 n < o a t o o o o o o o o p o t t t t t t t t t t s 5 r 0 5 0 5 5 5 5 0 5 5 y 1 1 2 2 3 4 5 6 6 7 5 Age Cohort 8

Source: U.S. Census Bureau

Housing According to the U.S. Census, in 2000 there were 45,947 total housing units in Sheboygan County, of those 94.8 percent are occupied. Table 1-5 illustrates the median year that houses in Sheboygan County were built is 1959, while Wisconsin’s median age for housing units is 1965. Over one-third of all housing units in Sheboygan County were built before 1939. This may mean there will be a need to renovate and/or build new housing units. Household size and demographics impact the amount and type of housing needed in a community. The total number of housing units in Sheboygan County has increased moderately since 1980. From 1980-2000, the total number of housing units in Sheboygan County has increased by 25 percent which is slower than the State of Wisconsin which experienced a 32 percent growth in housing units during that same period. Sheboygan County’s housing stock appears to be older than the surrounding counties (See Table 1-5). Washington and Ozaukee County homes have a median age of 1976 and 1972 respectively, on average this is about 15 years newer than Sheboygan County homes.

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Table 1-5: Total Housing Units, Sheboygan County & State of Wisconsin

State of Sheboygan Fond du Lac Manitowoc Ozaukee Washington Wisconsin County County County County County % of Total Units 2000 2000 2000 2000 2000 2000 Total Housing Units 2,321,144 45,947 39,271 34,651 32,034 45,808 1999 to March 2000 2.2% 1.9% 1.6% 1.6% 2.4% 3.2% 1995 to 1998 7.3% 6.2% 7.8% 6.0% 7.6% 10.4% 1990 to 1994 7.3% 6.4% 6.8% 5.7% 10.2% 13.5% 1980 to 1989* 10.8% 9.3% 9.0% 7.5% 12.7% 13.8% 1970 to 1979** 16.9% 14.9% 15.6% 14.6% 21.2% 20.8% 1960 to 1969 11.9% 10.3% 10.3% 10.1% 14.2% 10.8% 1950 to 1959 12.6% 9.6% 11.6% 12.2% 13.4% 7.9% 1940 to 1949 7.7% 7.7% 7.1% 8.9% 4.9% 4.0% 1939 or earlier 23.4% 33.7% 30.2% 33.4% 13.5% 15.5% Median Year Built 1965 1959 1961 1956 1972 1976 Source: US Census, *1990 Includes units built 1989 to March 1990, **1980 Includes units built 1979 to March 1980 It is projected that in 2030 there will be 53,949 households in Sheboygan County; this would be an increase of over 10,000 or 24 percent since 2000. Table 1-6 shows the projected number of households for Sheboygan County and surrounding counties. Appendix 2 - Sheboygan County Background and Inventory Report shows the number of projected households for all municipalities in Sheboygan County. Sheboygan County is projected to see a smaller growth in the number of households than Fond du Land, Ozaukee, and Washington Counties. Washington County is projected to see the largest percent change in the number of households from 2000 to 2030, nearing 40 percent. The number of households that are projected will influence the number of housing units that are built in the next 20 years. Demands for new housing must meet the needs of a cross-section of residents. New housing in Sheboygan County coupled with well- maintained older homes should help provide adequate housing stock necessary to meet the needs and desires of existing residents.

Table 1-6: Number of Projected Households Census Projected Percent Municipality 2000 2005 2000 2015 2020 2025 2030 Change Sheboygan County 43,548 45,141 43,548 48,806 50,607 52,378 53,949 23.9% Fond du Lac County 36,931 38,787 36,931 42,444 44,019 45,285 46,319 25.4% Manitowoc County 32,723 33,781 35,125 36,386 37,562 38,283 38,773 18.5% Ozaukee County 30,857 32,183 33,680 35,294 36,833 38,267 39,208 27.0% Washington County 43,843 46,829 49,906 52,890 55,652 58,771 61,351 39.9% Source: Wisconsin Department of Administration

Education Educational attainment appears to be on the rise in Sheboygan County (See Table1-7 and Figure 1-11). The County has seen an increase of 4.1 percent since 1990 in the percent of people holding a bachelor’s degree or higher. When comparing Sheboygan County to the State of Wisconsin, using U.S. Census data, the County lags behind in the percent of people who hold a bachelor’s degree or higher. The State has a larger percentage of its population (over 25 years

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Educational Attainment, People 25 Years of Age and Older, Sheboygan County and State of Wisconsin, 1990 & 2000

45.00% State of WI-1990 40.00% Sheboygan Co.-1990 35.00% State of WI-2000 30.00% Sheboygan Co.-2000 25.00% 20.00% 15.00%

Percentage 10.00% 5.00% 0.00% a e e de ree ee e lom uate gre ip d eg gr e d d d th gra o de degr o gra n e s al 9 n l t n n e, ia lor' a hoo th oc ssio rad sc s e g ollege, s ss h A Bache rof Le ig e c p H r 12th o o t Som h 9t Education Level aduate Gr Source: U.S. Census Bureau

When looking at the 2006 American Community Survey data, produced by the U.S. Census Bureau, one can see that Sheboygan County continues to have a smaller percentage of residents who hold a bachelor’s degree and who have higher education levels than the overall state population. Although Sheboygan County has closed the gap with the State slightly on the percent of residents who are high school graduates or higher, Sheboygan County still has a smaller percentage of residents obtaining higher levels of education than the overall State.

Table 1-7: Educational Attainment for Sheboygan County & Wisconsin, 1990, 2000, 2006

State of Wisconsin Sheboygan County 1990 2000 2006* 1990 2000 2006* Population 25 years and over 3,094,226 3,475,878 3,682,631 66,938 74,561 77,886 Less than 9th grade 9.5% 5.4% 4.1% 10.8% 5.8% 3.7% 9th to 12th grade, no diploma 11.9% 9.6% 7.6% 11.8% 9.8% 8.4% High school graduate** 37.1% 34.6% 34.8% 41.6% 39.9% 38.0% Some college, no degree 16.7% 20.6% 19.6% 15.0% 19.7% 19.5% Associate degree 7.1% 7.5% 8.8% 7.1% 6.9% 9.4% Bachelor's degree 12.1% 15.3% 16.7% 9.9% 12.8% 14.9% Graduate or professional degree 5.6% 7.2% 8.4% 3.8% 5.1% 6.2% Percent high school graduate or higher 78.6% 85.1% 88.4% 77.4% 84.4% 87.9% Percent bachelor's degree or higher 17.7% 22.4% 25.1% 13.8% 17.9% 21.0%

Source: US Census; * 2006 American Community Survey by the U.S. Census Bureau ** Includes equivalency 1-24

Sheboygan County Comprehensive Plan Adopted

Table 1-8 shows that Sheboygan County is in the middle when it comes to comparing education attainment levels with neighboring counties. Sheboygan County has a greater percent of residents with bachelor’s degrees or higher compared to Fond du Lac and Manitowoc Counties, but Sheboygan County has a lower percentage of residents attaining these higher levels of education compared to Ozaukee and Washington Counties. One possible explanation for this

Table 1-8: Educational Attainment for Sheboygan County & Surrounding Counties, 2000

Educational Attainment Sheboygan Fond du Lac Manitowoc Ozaukee Washington County County County County County Levels 2000 2000 2000 2000 2000 Population 25 years and over 74,561 63,548 55,452 54,912 77,709 Less than 9th grade 5.8% 5.8% 6.7% 2.9% 4.3% 9th to 12th grade, no diploma 9.8% 10.1% 8.8% 5.2% 6.9% High school graduate** 39.9% 40.1% 43.0% 24.2% 35.1% Some college, no degree 19.7% 19.1% 18.6% 22.0% 22.9% Associate degree 6.9% 8.2% 7.4% 7.0% 8.8% Bachelor's degree 12.8% 12.0% 11.3% 25.6% 16.0% Graduate or professional degree 5.1% 4.9% 4.1% 13.0% 6.0% Percent high school graduate or higher 84.4% 84.2% 84.6% 91.9% 88.8% Percent bachelor's degree or higher 17.9% 16.9% 15.5% 38.6% 21.9% Source: U.S. Census Bureau

difference may be that Ozaukee and Washington Counties lie within the Milwaukee Metropolitan Area (MMA), which is home to many more colleges and universities than Sheboygan County. Sheboygan County has Lakeland College, UW-Sheboygan, and Lakeshore Technical College Sheboygan; whereas, the MMA has UW-Milwaukee, Marquette University, Concordia University, Milwaukee School of Engineering, UW-Washington County, and many others. With all the opportunities to further one’s education, it should not be surprising that MMA residents have higher levels of education than Sheboygan County residents. As job sectors shift and change, Sheboygan County needs to try to increase its residents’ levels of educational attainment.

Income Levels According to the 2006 American Community Survey by the U.S. Census Bureau, the median income for a household in Sheboygan County and the State was $46,560 and $48,772 respectively. The mean or average income was $57,657 and $60,859 respectively. In 1999, the U.S. Census Bureau stated Sheboygan County had a median income of $46,237 and a mean income of $54,105. This indicates the median income has increased slightly, while the mean income increased by over $3,000. In 1999, the State of Wisconsin had a median income of $43,791, which means Sheboygan County had a higher median income (See Table 1-8) than the State.

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Table 1-8: Income Brackets, Sheboygan County & State of Wisconsin, 1979, 1989, 1999 State of Wisconsin Sheboygan County Income Levels 1979 1989 1999 1979 1989 1999 Less than $10,000 26.6% 14.0% 7.1% 24.2% 11.3% 4.9% $10,000 to $14,999 15.0% 9.4% 5.8% 13.5% 8.3% 5.2% $15,000 to $24,999 29.0% 18.7% 12.7% 32.7% 18.6% 12.1% $25,000 to $34,999 17.2% 17.4% 13.2% 18.7% 18.0% 13.2% $35,000 to $49,999 8.3% 20.2% 18.1% 7.5% 24.4% 19.5% $50,000 to $74,999 2.7% 14.1% 22.7% 2.5% 14.3% 26.2% $75,000 to $99,999* 1.1% 3.6% 10.9% 1.0% 2.8% 11.2% $100,000 to $149,999 ~ 1.7% 6.4% ~ 1.4% 5.2% $150,000 to $199,999** ~ 1.0% 1.5% ~ 0.9% 1.2% $200,000 or more ~ ~ 1.5% ~ ~ 1.3% Total Households 1,654,777 1,824,252 2,086,304 35,433 38,658 43,595 Median Household Income $17,680 $29,442 $43,791 $18,719 $31,603 $46,237 Source: U.S. Census Bureau

Sheboygan County’s 2006 per capita personal income (PCPI) is $35,419, which ranks 7th highest among Wisconsin’s 72 counties in 2006 for its PCPI. Sheboygan County’s PCPI has been steadily increasing. From 2000 to 2006, the PCPI has risen by 23 percent, which is a larger percentage than in Wisconsin and the United States. Table 1-9 shows the PCPI from 2000-2006 in Wisconsin, Sheboygan County, and surrounding counties. Of the surrounding counties, Ozaukee is the only one which saw a larger percent change in its PCPI since 2000. Ozaukee County has the highest PCPI in the state by nearly $10,000. Washington County has a high PCPI, but has not seen the same growth as Sheboygan County in that time period.

Table 1-9: Per Capita Personal Income Percent 2000 2001 2002 2003 2004 2005 2006 Change Sheboygan County $28,814 $29,733 $30,460 $31,251 $32,829 $33,861 $35,419 22.9% Fond du Lac County $27,716 $28,151 $29,121 $29,951 $30,919 $31,745 $32,923 18.8% Manitowoc County $26,152 $26,506 $27,043 $27,807 $29,416 $30,595 $31,624 20.9% Ozaukee County $46,092 $46,637 $46,829 $47,527 $50,693 $52,873 $56,816 23.3% Washington County $33,604 $33,683 $33,998 $35,196 $35,838 $37,490 $39,797 18.4% Wisconsin $28,573 $29,361 $30,050 $30,664 $32,095 $33,278 $34,405 20.4% Source: U.S. Dept. of Commerce, Bureau of Economic Analysis, June 2008

Nearly two-thirds of Sheboygan County’s households earn at least $35,000, compared with 54 percent of Fond du Lac households and 62 percent of Manitowoc’s households. Ozaukee and Washington Counties have higher household incomes; three-fourths of households in these counties earn at least $35,000. Median income levels between Sheboygan, Fond du Lac, and Manitowoc Counties are similar, but Ozaukee County’s median income is over $15,000 greater than Sheboygan County’s. Ozaukee and Washington Counties also have higher median incomes which is partially due to their suburban Milwaukee location.

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Table 1-10: Income Brackets, Sheboygan County & Surrounding Counties, 1999 Sheboygan Fond du Manitowoc Ozaukee Washington County Lac County County County County Household Income 1999 1999 1999 1999 1999 Less than $10,000 4.9% 5.9% 6.0% 2.7% 3.4% $10,000 to $14,999 5.2% 6.0% 6.1% 2.9% 3.2% $15,000 to $24,999 12.1% 12.1% 13.2% 8.0% 8.0% $25,000 to $34,999 13.2% 12.1% 13.7% 9.2% 10.6% $35,000 to $49,999 19.5% 19.9% 19.3% 14.2% 16.6% $50,000 to $74,999 26.2% 16.4% 25.6% 23.7% 27.9% $75,000 to $99,999* 11.2% 10.5% 10.0% 15.5% 15.5% $100,000 to $149,999 5.2% 4.8% 4.1% 13.7% 11.0% $150,000 to $199,999** 1.2% 1.0% 1.0% 4.2% 2.1% $200,000 or more 1.3% 1.1% 1.0% 6.0% 1.7% Total Households 43,595 36,894 32,731 30,887 43,910 Median Household Income $46,237 $45,578 $43,286 $62,745 $57,033 Source: U.S. Census Bureau

Employment Characteristics According to the 2000 Census, of the 87,548 people considered to be of working age (16 years and older), 61,080, or 70 percent, are currently in the labor force, while 26,468 people consider themselves to be out of the labor force (student, stay-at-home parent, retiree, etc.). This compares to the 1,610 people (2.6 percent of the active labor force) who are currently unemployed and seeking employment. The Wisconsin Department of Workforce Development has found that in 2006 there were 65,113 people in the labor force, of those 62,519 people were employed. This is an increase in number of people in Sheboygan County in the workforce by over 6.6 percent. The unemployment rate provides a look at the state of the job market in a given area. If the unemployment rate is very low, it may mean there are not enough workers for the jobs currently available in the area, but if the unemployment rate is higher, it may mean there is an abundance of workers available for employment. Looking at Table 1-11, one can see that over the last four years Sheboygan County’s unemployment rate has been lower than the State of Wisconsin’s annual unemployment rate. Sheboygan County has seen a lower unemployment rate than neighboring Fond du Lac and Manitowoc Counties, but a higher rate than Ozaukee County. In the first few months of 2008, Sheboygan County’s unemployment rate has increased to nearly 4.5 percent, with Wisconsin’s rate reaching 5.1 percent, the highest since 2003.

The current jobs in Sheboygan County are shown in Table 1-12. According to the Wisconsin Department of Workforce Development’s (WI DWD) “Workforce Profile of 2007,” the largest industry in Sheboygan County is manufacturing, with 22,989 people, or 37.2 percent of the labor force, working in this field. The next largest sector is the educational, health, and social services field, with 10,956 people, or 17.7 percent of the labor force. These two industries are also the largest sectors when analyzing data for the State of Wisconsin. The highest paying industry in Sheboygan County, on average, is the financial sector, while the average manufacturing wages are only $500 lower. Leisure and Hospitality is the lowest paying industry with the average wage being $11,111. The average wage for all industries in Sheboygan County is $35,946, which is

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Table 1-11: Unemployment Rates for Wisconsin, Sheboygan, & Surrounding Counties, 2004-2007 Year 2004 2005 2006 2007 Sheboygan County 4.5% 4.0% 4.0% 4.3% Fond du Lac County 4.7% 4.7% 4.7% 4.8% Manitowoc County 6.0% 5.0% 4.9% 5.3% Ozaukee County 3.7% 3.8% 3.6% 3.8% Washington County 4.5% 4.2% 4.1% 4.3% Wisconsin 5.0% 4.8% 4.7% 4.9% Source: Wisconsin Department of Workforce Development; U.S. Bureau of Labor Statistics

Table 1-12: Sheboygan County Industry of Employment, 2007 Average Percent of Sheboygan Co. Wisconsin Industry of Employment Employees Employment Average Wage Average Wage Natural Resources 475 0.77% $22,090 $28,301 Construction 2747 4.44% $41,609 $44,682 Manufacturing 22989 37.19% $44,360 $45,952 Trade, Transportation, Utilities 9473 15.33% $28,173 $31,935 Information 380 0.61% $31,952 $45,704 Financial Activities 2417 3.91% $44,874 $4,885 Professional & Business Services 3964 6.41% $32,768 $42,612 Education & Health 10956 17.73% $38,005 $38,492 Leisure & Hospitality 4997 8.08% $11,111 $13,058 Other Services 1842 2.98% $14,403 $21,228 Public Administration 1571 2.54% $39,130 $38,294 TOTALS 61,811 100%+/- $35,946 $36,830 Source: WI DWD “Sheboygan County Workforce Profile of 2007”

less than Wisconsin’s total average wage of $36,830. Appendix 2: Sheboygan County Background and Inventory Report displays the industries and their total numbers and percentages from the U.S. Census.

Sheboygan County is different from its surrounding counties because of its high reliance on the manufacturing industry. Over 37 percent of employment in Sheboygan County is in the manufacturing industry; whereas, manufacturing makes up less than 26 percent of employment in Fond du Lac, Ozaukee, and Washington Counties (see Table 1-13). Sheboygan County has, on average, 2 percent fewer employees in public administration or government than the surrounding counties. Another area where Sheboygan County differs from the neighboring counties is in the percent of employees involved in trade, transportation, and utilities. Washington County has nearly 22 percent of its employment in this industry, while Sheboygan County only has 15 percent. One of the most interesting observations is that Sheboygan County has an average of over 61,800 people employed per year; this is significantly higher than the average number of people employed in the neighboring counties.

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Table 1-13: Sheboygan County & Surrounding Municipalities Percent of Employment per Industry, 2006 Sheboygan Fond du Lac Manitowoc Ozaukee Washington County County County County County Percent of Percent of Percent of Percent of Percent of Industry of Employment Employment Employment Employment Employment Employment Natural Resources 0.77% 1.79% 2.30% 0.47% 0.71% Construction 4.44% 5.59% 3.83% 4.79% 5.79% Manufacturing 37.19% 23.79% 31.55% 25.40% 26.38% Trade, Transportation, Utilities 15.33% 19.87% 17.98% 17.38% 21.75% Information 0.61% 1.96% suppressed suppressed 1.00% Financial Activities 3.91% 3.94% 2.82% 6.97% 4.52% Professional & Business Services 6.41% 5.64% 5.05% 9.79% 7.04% Education & Health 17.73% 18.78% 18.91% 16.28% 15.48% Leisure & Hospitality 8.08% 9.74% 8.82% 10.62% 10.55% Other Services 2.98% 3.36% 2.77% 3.43% 3.17% Public Administration 2.54% 5.54% 4.84% 4.31% 3.59% Annual Average Number of People Employed 61,811 45,658 34,910 38,156 52,337 Source: WI DWD “County Workforce Profiles of 2007”

Table 1-14 shows that average wages per industry in Sheboygan County and its neighboring municipalities. Sheboygan County’s average wage for all industries is higher than Fond du Lac, Manitowoc, and Washington Counties. It appears that manufacturing and financial activities have the highest wages per industry. Manitowoc County is an outlier with professional and business services because its average wage is much higher than all the other municipalities in that category (shown in Table 1-14).

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Table 1-14: Sheboygan County & Surrounding Municipalities Average Wage per Industry, 2006

Sheboygan Fond du Lac Manitowoc Ozaukee Washington County County County County County Average Average Average Average Average Industry of Employment Wage Wage Wage Wage Wage Natural Resources $22,090 $26,028 $24,731 $31,567 $28,047 Construction $41,609 $44,914 $36,209 $48,745 $40,025 Manufacturing $44,360 $44,948 $40,032 $54,875 $43,831 Trade, Transportation, Utilities $28,173 $26,864 $32,040 $32,672 $31,223 Information $31,952 $31,213 Suppressed Suppressed $25,256 Financial Activities $44,874 $39,111 $28,264 $51,246 $46,287 Professional & Business Services $32,768 $29,743 $51,817 $40,638 $37,935 Education & Health $38,005 $37,089 $34,961 $40,885 $35,762 Leisure & Hospitality $11,111 $9,753 $9,059 $11,992 $10,138 Other Services $14,403 $18,482 $16,206 $19,903 $18,894 Public Administration $39,130 $36,678 $34,727 $31,648 $33,914 Average Wage All Industries $35,946 $33,407 $33,606 $39,901 $34,314 Source: WI DWD “County Workforce Profiles of 2007”

The WI DWD created the Bay Area Development Area Profile, 2004-2014, which is a projection for industries, occupations, and the labor force. These projections are for the total number of nonfarm jobs in the ten-county Bay area, which includes Sheboygan County (Table 1-15). According to the profile, overall employment is projected to grow 10 percent between 2004 and 2014. The education and health services sector is projected to have the largest numeric employment growth by adding 11,690 jobs, or a 22 percent increase. Manufacturing is currently the largest employing industry in the region and will remain the largest sector in 2014; however, other industry sectors will continue to close the gap over period. Occupations remaining in manufacturing are expected to continue to move away from general labor positions to more semi-skilled and skilled operator and technician jobs. This is due primarily to production processes that are more efficient and availability of new technologies. With the change in industry, one may expect education or training may be needed in other growing fields. In 2000, residents’ mean travel time to work increased by two minutes since 1990 to 16.9 minutes; this may increase if more of the manufacturing & agricultural industry disappears. This data is shown in Appendix 2: Sheboygan County Background and Inventory Report. The ability for residents to remain employed with a reasonable travel time to work will be a key concept in planning for Sheboygan County’s future.

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Table 1-15: Industry Projections for the Bay Area Wisconsin Workforce Development Area, 2004-2014

2004 2014 2004-2014 2004-2014 Estimated Projected Employment Percentage Industry Title Employment Employment Change Change Total Non-Farm Employment 307,450 338,120 30,670 10.0% Construction/Mining/Natural Resources 16,000 18,810 2,810 17.6% Manufacturing 75,080 73,380 -1,700 -2.3% Paper Mfg 9,850 8,780 -1,070 -10.9% Plastics and Rubber Products Mfg 5,300 5,760 460 8.7% Transportation Equipment Mfg 5,920 6,020 100 1.7% Trade 43,570 46,780 3,210 7.4% Building Material and Garden Equipment and Supplies Dealers 3,350 3,740 390 11.6% Transportation and Utilities (Including US Postal) 16,390 17,750 1,360 8.3% Financial Activities 15,570 17,350 1,780 11.4% Education and Health Services (Including State and Local Gov Educ and Hosp) 52,650 64,340 11,690 22.2% Ambulatory Health Care Services 9,980 13,550 3,570 35.8% Hospitals (Including State and Local Government) 12,140 14,890 2,750 22.7% Leisure and Hospitality 29,340 33,860 4,520 15.4% Information/Prof Services/Other Services 39,580 45,700 6,120 15.5% Government (Excluding US Postal, State and Local Educ and Hosp) 19,270 20,170 900 4.7% Source: Office of Economic Advisors, Wisconsin Department of Workforce Development, August 2004 Information derived using 2004 CES (3/05 Benchmark) and 2004 QCEW data. To the extent possible, the projections take into account anticipated changes in Wisconsin's economy between 2004 and 2014. It is important to note that unanticipated events may affect the accuracy of the projections.

SUMMARY The following summary includes the main trends regarding population and employment forecasts, as well as demographic trends such as age, education, income, and employment characteristics within Sheboygan County.

• Population and Age Trends o Close to 30 percent of the County’s population will be over 55 by 2030, currently the population over 55 is only 24 percent. This will bring a shift in the workforce and them demographics of the area. o Sheboygan County’s total population is expected to grow by 18 percent from 2000 to 2030. o The Village of Oostburg is projected to see the largest population growth by percentage. The Town of Sheboygan and City of Plymouth are projected to see the largest population increase by number of people added to their municipalities.

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• Housing o Sheboygan County’s housing is also slightly older than the State of Wisconsin’s and neighboring counties. People want clean, well kept homes and this may mean not enough new housing is being built. o Sheboygan County’s median year the housing unit was built is 1959, while the State of Wisconsin’s median year the housing unit was built is 1965. o By 2030, Sheboygan County is projected to have 53,949 households; this is a 23.9 percent change from 2000. The only neighboring county projected to have a smaller percent change of households is Manitowoc County.

• Education o Educational attainment levels need to be improved slightly. Sheboygan County has a smaller percent of its residents obtaining higher levels of education such as a bachelor’s degrees or higher than the State of Wisconsin average. o Sheboygan County also lags behind neighboring counties in educational attainment. Sheboygan County only has 84.4 percent of its population being a high school graduate or higher; whereas, Manitowoc, Ozaukee, and Washington County all have a greater percentages of residents with this distinction. Ozaukee and Washington County may have higher education attainment levels because they lie within the Milwaukee Metropolitan Area (MMA). o Sheboygan County does have a higher percent of residents obtaining a graduate or professional degree than Fond du Lac and Manitowoc Counties.

• Income o A direct correlation can be found between education levels and income. If Sheboygan County’s population increases its educational attainment levels, then there will also be an increase in income levels. This is shown because Ozaukee and Washington Counties have higher education levels, as well as higher income levels. o Ozaukee County is an outlier in its per capita personal income (PCPI), having the highest in the state by nearly $10,000. In 2006, Sheboygan County’s PCPI was higher than the State of Wisconsin’s, Fond du Lac County’s, and Manitowoc’s. o The median household income for Sheboygan County is in the middle compared to its surrounding counties. The median household income is $46,237 which is higher than Fond du Lac and Manitowoc Counties, but is lower than Ozaukee and Washington Counties.

• Employment o Sheboygan County has over 37 percent of its jobs in the manufacturing sector, while Fond du Lac, Ozaukee, and Washington Counties have around 25 percent in this sector. Manufacturing jobs play a vital role in Sheboygan County’s job force, so policies will need to focus on this area. o Sheboygan County’s unemployment rate, ranging from 4.0 percent to 4.5 percent, has been steadily lower than the State of Wisconsin’s. Sheboygan County has had

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a lower unemployment rate from 2004 to 2007 than all surrounding counties, expect for Ozaukee County. o Sheboygan County’s average annual wage is $35,946, while the State of Wisconsin’s average wage is $36,830. Sheboygan County’s average annual wage is higher than Fond du Lac, Manitowoc, and Washington Counties’ average wage. o Sheboygan County’s natural resource industry’s wage appears to much lower than its neighboring counties, but the average wage for Sheboygan County’s public administration employment is higher than its neighboring counties. o Industry projections for the Bay Area Workforce Development Area shows that this area, which includes Sheboygan County, is projected to see a 10 percent increase in the total number of non-farm employment from 2004 to 2014. o The only job sector that is projected to see a loss of jobs in this area is the manufacturing sector. The paper manufacturing industry is projected to see the largest decrease. This may not have a large impact on Sheboygan County because the paper manufacturing industry is small, if not nonexistent here. o The education and health services sector is expected to see the largest growth from 2004-2014, this includes schools, hospitals, ambulance services, and other health and education related industries.

Sheboygan County will continue growing over the next 20 years, even though the rate of growth may gradually decrease. Sheboygan County has a large percent of its jobs in the manufacturing sector; this could have both positive and negative impacts on the County. In the future, educational attainment of Sheboygan County’s residents will be vitally important. Education and income levels are related, so when one increases it tends to show an increase in the other. The projections for population, housing, and employment are just that, projections, so they are subject to change as unpredictable events may occur.

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