Wisconsin Land Information Program
LandInformation Board
County Office Lk1its
Grants-In-Aid Program
Land Information Producers and Users Permission to reproduce this report is granted on the condition that the report is acknowledged.
The illustration on the cover is a conceptual representation of the diagram o.n page19,-which more completely depicts relationships among the components of the proposed Wisconsin Land Information Program.
To request a copy of this report,write to: Attn: WLRC Final Report, Center for Land Information Studies, Room 1042 WARF Building, 610 Walnut Street, Madison, Wisconsin 53705; or call (608) 262-9937.
::s n: '.:M7$>?*?S?»?=*W?3°'?'£"; ':???? j rn::; FINAL REPORT OF THE WISCONSIN LAND RECORDS COMMITTEE: MODERNIZING WISCONSIN'S LAND RECORDS
July 1987 Wisconsin Land Records Committee State of Wisconsin c/o Institute for Environmental Studies University of Wisconsin-Madison
1040 WARF Building, 610 Walnut Street, Madison, WI 53705 (608) 263-6843
July 1, 1987
Committee Members Governor Tommy G. Thompson James Clapp, Chair State of Wisconsin Myron Bacon Kurt Bauer State Capitol Building William Chatterton Madison, Wisconsin 53702 Arnold Clement Barbara Crosser Helen Croteau Dear Governor Thompson, Earl Espeseth Phyllis Fuller On behalf of the thirty-two members of the WisconsinLand Records Committee and the seventy-one Kevin Hagen George Hall members of its twelve supporting subcommittees and task force, I am pleased to submit to you this final report. William Huxhold Contained within are the Committee's recommendations fora WisconsinLand InformationProgram which, if Carolyn Johnson implemented, would provide the means for the State of Wisconsin to address the immediate needs of state and James Johnson Craig Karr local agencies regarding land records collection andmanagement, and the long-term issues of land record$ Rebecca Keipe modernization. Anthony Kiedrowski Tom Krauskopf These needs and issues are extremely broad in scope, and profound in their impact upon the decision Julie MacSwain Florence Magnuson process in both the public and private sectors. Three recent issues that illustrate the need to recognize and Suzette Mullooly address the problem are: (1) a U.S. Supreme Court decision that found a financial lender liablefor site Bernard Niemann Jr. contamination that occurred prior to the loan; (2) analysis by. a private market research firm projecting an Meredith Ostrom investment by utilities and local governments of $45 to $92 billion by the year 2000 in automated land James Plourde Diane Preston information systems; and, (3) a Kentucky Supreme Court decision that found a tax assessment process Janet Price unconstitutional because it failed to take into account such factors as variation in soil productivity. In brief, Shirley Rasmussen decision-makers including citizens, privatefirms and public officials need access to accurate and timely land Judy Rendall Agnes Ring related information for a variety of purposes. A 1978 Wisconsin Department of Administration report revealed Bette Salmon that Wisconsin invests $80 million annually (approximately $135 million in 1987 dollars) to collect and Arden Sandsnes maintain land information. In efforts to improve efficiency, many local and state government agencies, Anita Sprenger Arthur Ziegler utilities, and businesses are beginning to modernize their land records. The State has a vital role in helping to manage the change that is already upon us, for the benefitof its citizens.
Coordinating Staff At nine public informationmeetings held around the state, the proposed WisconsinLand Information James Clapp Program received widespreadsupport by elected officials and other concerned professionals. Hardly a week has Chair D. David Moyer gone by in recent months without a request for a presentation on the Committee's recommendations from Facilitator organizations of elected officials, nationaland international professionalassociations, other states studying land Bernard Niemann Jr. records modernization,and most recently, a National Governors Association conference on "Integrating Facilitator Vice Chair Information for Decisionmaking." To date, the Committee's recommendations have received support from Christine Reinhard several federal and local government officials, officers of professional organizations, and individual citizens. Facilitator Barbara Weisman Program Assistant It has been a pleasure and an honor to serve as your chairman. I am ready to assist you in the implementation of the Committee's recommendations.
: . smc tr!J esL. Wisconsin�Land Records Committee Wisconsin Land Records Committee: FinalReport i
EXECUTIVE SUMMARY
After examining the needs and opportunities affected are property ownership rights and associated with modernizing land records for almost two responsibilities, property tax assessment, utility and years, the Wisconsin Land Records Committee transportation infrastructures, economic development recommends to the Governor and the Legislature that a and other land use planning, socioeconomic research, Wisconsin Land Information Program be and natural resource management. established. Increasingly available and affordable information The Program is a five-point plan for statewide land and surveying technologies provide a means to address records modernization with centralized coordination, yet many aspects of land records modernization. Interactive distributed responsibility. It is designed to foster and computer graphics, telecommunications, database guide the development of modern , multipurpose land management systems, and satellite systems for information systems - - development that is already under extremely accurate global positioning are a few of the way due to technological and socioeconomic trends. applicable state-of-the-art technologies.
Wisconsin Land Information Program
Wisconsin County Land lnfonnationBoard Land Jnfonnation Units Officeof LandInforma tion
Grants-In-AidProgram
Professional Private Federal State County Mwtlcipal Utilities Associations Sector Government Government Government Government
KEV: statutorily established "·:�·:·:·:�·:·:�·:·:·:·;-;-:-;·;.:·:�·:-; Independently established - mo< - lines of lnflUence
The Wisconsin Land Records Committee believes The Committee recognizes that many of the that state agencies, county and municipal governments, changes needed to modernize land records cannot be regional planning agencies, and certain private made overnight. Rather, new technologies and enterprises and utilities must act immediately to make legislative changes must be adopted gradually, and now-developing land information systems compatible. changes in administrative procedures should be based To fail to do so is to risk an inability to adequately address upon sound economic and technical precedents. increasingly complex policy and development issues, and to risk wasting tax dollars on systems with limited As expressed by the Committee, Wisconsin's applications and abilities. overall goal for modernizing land records is to develop, implement, and maintain compatible multipurpose land A large percentage of society's need for information systems that can provide useful, quality data information is related to the land. Day-to-day policy needed by citizens, public agencies, and businesses. A making, management, and government services are furtherobjective is to establish economic, legal, hindered by an inability to associate much of this land institutional, technical, and educational frameworks to related information with its physical location. Most fairly and efficiently support these systems. ii Wisconsin Land RecordsCommittee: Final Report
The Wisconsin Land Information Program planning commissions, utilities, and the private sector will provide a long-range, strategic mechanism to guide will be encouraged as well. The Office will be the development of modern, multipurpose land administratively attached to the University of information systems, as well as a flexible process by Wisconsin System for the provision of physical space which to implement and maintain these systems. As and basic overhead services. such, it will enable Wisconsin to meet the goal set forth •The Grants-In-Aid Program will help fund by the Committee. The Program will: establish a Land development of local and regional multipurpose land lnfonnation Board, an Officeof Land Information, and a information systems. It will include technical Grants.. ln -Aid Program; encourage the establishment of assistance to local governments undertaking any County land Information Units; and cooperate with a degree of land records modernization. Any local unit non-governmental Land Information Association. of government will be able to apply for grants. The 11 The Land Information Board will establish and Board will review all grant proposals, and each grant direct overall Program policy. The Board will develop will require an equal or greater in-kind match from non programs to include: state sources. o a Grants-In-Aid Program to help fund local II Each of Wisconsin's 72 counties will be encouraged government efforts to modernize land records; to establish a County Land Information Unit. o guidelines for implementing multipurpose land Because the parcel-level land data maintained by local information systems; governments is crucial to a statewide land information network, County Units will be fundamental to the o methods for resolving legal and administrative discrepancies pertaining to land information; Land Information Program and will: o advisory channels to the Governor, Legislature, o serve as the primary contact point between local and state agencies; and government and the Office of Land Information; o educational, research, and outreach projects to o apply to the Grants-In-Aid Program for funding promote land records modernization. to assist with land records modernization; and o assist with land records modernization projects To ensure institutional balance the Governor will initiated by local governments, businesses, and appoint 12 Board members -- four each from: small utilities within county borders. (a) state agencies; Because of considerable variation in needs and (b) county, municipal, and town governments, and constraints, each county would structure the type of regional planning commissions; and Land Information Unit best suited to its priorities. (c) the private sector and utilities. • In its 1986 Summary Report, the Wisconsin Land Appointees will reflect a statewide regional and urban/ Records Committee recommended that an rural balance. independent, non-governmental association of land •The Office of Land Information will administer records professionals be established. Since then, the programs developed by the Board. The Office will: Wisconsin Land Information Coalition has emerged as a grassroots organization of concerned o administer the Grants-In-Aid Program; professionals who advocate land records o help local and state agencies integrate land modernization in Wisconsin. The Coalition hopes to information for decision-making; build upon the momentum generated by the o maintain a statewide inventory of land records Committee. and modernization efforts; The Wisconsin Land Records Committee envisions o serve as a clearinghouse for land information inquiries; and land records modernization as a dynamic, evolutionary process rather than a revolutionary one. The o assess the potential impact of new technologies likely to help modernize land records in technologies on land records modernization. the near future, for example, are sure to change even The Wisconsin State Cartographer's Office will merge more before the end of the century. The Wisconsin with the Office of Land Information to avoid Land Information Program is prepared to evolve duplication of effort. as necessary to manage this change. In addition to existing State Cartographer's Office personnel, Land Information Office staff will consist of Until such time as the Wisconsin Land Information Program is three full-time equivalent positions, including a established, additional information is available from the director selected by the Board. State agencies will be University of Wisconsin-Madison Center for Land Information encouraged to provide additional technical staff. Studies, (608) 262-9937, or from the Governor's Office. Liaisons with appropriate federal agencies, regional Wisconsin Land R�ords Committee: Final Report iii . Wisconsin Land RecordsComm ittee: Final Report iv Wisconsin Land RecordsCommittee: Final Report v
TABLE OF CONTENTS
EXECUTIVE SUMMARY ...... i
I. LAND RECORDS: INFORMATION FOR MANY USES ...... 1
II. THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS
FACTS ANDFI GURES ...... 3 ·WHY CHANGES ARE NEEDED: Problems with the Status Quo ...... 4 Opportunities for Improvement ...... 5 Trends Affecting Land Records Modernization ...... 7 MODERNIZATIONIN PROGRESS ...... 8
Ill. MULTIPURPOSE LAND INFORMATION SYSTEMS
THE MULTIPURPOSE CONCEPT ...... 11 A LAND INFORMATION NE1WORK ...... 11
SYSTEM ELEMENTS ...... 13
IV. THE WISCONSIN LAND RECORDS COMMITTEE
PURPOSE OF THECOMMITIEE ...... 15
COMMITIEE ORGANIZATION AND ACTIVITIES ...... 16 LAND RECORDS MODERNIZATION GOAL AND OBJECTIVES ...... 18
V. RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM
AN OVERVIEW ...... 19 LAND INFORMATIONBOARD ...... 21 OFFICE OF LANDINFORMATION ...... 25 GRANTS-IN-AID PROGRAM ...... 27 COUNTY LANDINFORMATION UNITS ...... 29 LAND INFORMATION ASSOCIATION ...... 31 FUNDING ...... 33
VI. INTO THE 21st CENTURY: A STRATEGY TO MANAGE CHANGE . . 35
l REFERENCES AND NOTES 37
APPENDICES A. COMMITTEE, SUBCOMMITIEE,AND TAS K FORCE MEMBERS ...... A-1toA-6
B. DESCRIPTIONS OF SUBCOMMITTEE AND TAS K FORCE REPORTS . . . • ...... B-1to8-2 C. LOCAL LAND RECORDS IN WISCONSI� ...... C-1to C-4 D. LAND RECORDS MODERNIZATION EFFORTS OUTSIDE WISCONSIN ...... D-1 Wisconsin Land RecordsComm ittee: Final Repolt vi La Wisconsin nd Records Committee: Final Report 1
LAND RECORDS: INFORMATION FOR MANY USES
The term "land records" encompasses a wide variety of • Socioeconomics topics and professions, and can therefore mean different The geographic location, extent, or distribution of things to different people depending on their demographic or sociological phenomena. backgrounds and interests. Wisconsin's land records are collected, stored, Land records, as defined by the Committee, include and used by virtually all state agencies, local maps, titles, statistics, and other documents on paper, microfilm/microfiche, computer files, or any other governments, regional planning commissions, communication media that record land information. and public utilities, as well as by many private organizations. All land records relate to publicly or privately owned land parcels and their associated In fact, of all information collected and maintained by all attributes. levels of government, the percentage that is land-related is so large that it is difficult to imagine a data set whose Land information is in turn considered any and all value would not be enhanced by a geographic or locational reference. information about the economic, legal, and physical aspects of land -- whether above, on, or below the surface of the earth. Several studies have shown that as much as 80 percent of all municipal transactions, To effectively resolve complex policy issues, to offer revenues, expenditures, and other day-to-day basic services, and to meet or monito r rules and .managem_ent functions involve land regulations, decision-makers must consider several information.1 types of information simultaneously. Land records, in particular, convey information essential to governments, Consider the specific examples, on page 2, of land utilities, businesses, and citizens -- such as: records and the agencies and organizations that use them.2 {See also Local Land Records in Wisconsin, • Individual Property Rights Appendix C.) Legal ownership rights and regulations; The accuracy, ·umeliness, and efficiency with which these agencies and organizations process land • Property Valuation . information have an immediate impact on the citizens of Property descriptions used to determine value; Wisconsin in areas such as:
• Land Use • Economic Development; Current and past land use, and attributes of potential development sites; • Environmental Protection;
Infrastructure • Hazardous Waste Disposal; Attributes, geographic locations, and dimensions of • Land Ownership Transfer; the infrastructure systems essential to meeting society's fundamental needs for transportation, • Land Use Regulation and Zoning; sewerage, water supply, storm water management, · , · electric power, and communications; Personnel Allocation; (
• Natural Resources • Property Taxes; Attributes, geographic location, and extent of natl:lral features above, on, or below the earth's surface. • Resource Management;
Geographic Reference Transportation Planning and Design; Legal, administrative, and technical references to • Urban and Rural Planning; and dimensions and locations on the surface of the earth; and · • Utility System Pl_anning and Design. 2 Wisconsin Land Records Committee: Final Report
Agency State
land Record Key ·::::: �::: ::�: ::r:: ·::::: ::::: • Collectand use data :::::: ::::: Easements ::::;:: ::::: Mineral Resources (iiJ Deeds :;:::;: Use data collected by others Liens . Land Surve s ·r.:: Ill 1111111111111 y Environmental Imoact ·::: 111111111 :�? ::::: Petroleum Ri2hts 111111 �::: :�::: II w DNR Dept. of Natural Resources DOT Dept. of Transportation
Assessment Records •:;:;:� ;:;:;: ::;:: 111111 ::::: DILHR Dept. of Industry, Labor, and �S�o-i�ls_,,_·�-- ..------1-�1!11111111-- -w.ll...i-;11111..,,,;:;��-1--+-;:��:�;,�.� Human Relations Well Information ;:;:;. 11 •; :;:;: ;:;:; Parcel Characteristics ;:;:;: ;:;:; :;:::. :=�: :::::: ::::: 11111:; :;: DOA Dept. of Administration Parcel Identification Buildin & Imorov. Char. DATCP Dept. of Agriculture, Trade, and l! Sale Prooertv s Consumer Protection DOR Dept. of Revenue DOD Dept. of Development
Resource Pro2rams II ;:;:;: 1111 ?;: .._ RP C's Regional Planning Commissions
Oil Drillin2 Information ':!'!' 111111 GNHS/ Geological & Natural History i in O ons M n l! rat l-� ,e_ l -loe l 111111 UWEX Survey (within University of F r st ______� ::: : :::: Ill: ::::: ::�: ;! �� _ - _ '.J-H�-��:�: : _,.�� � _ a�t o : ; l h·��·-· =?: .. ': Wisconsin-Extension) g olo : · gy R 'fs ____ i-��_ � - - ....•:�_ _ -' _ _ :_ _ _ _ _ • Other Transportation; � , ;J �:;:;:t;:;:;1 :S :��� : ::"""""H:j:j:iil� ewers I 11111:; ; "' "';'H-+4" II :d 1:�; : ::: :: . 1�::;:t:::::1 a e a : �:w: :t :r:M: :11:n s:::::::::::::::::Ill �*�i:l-'-ll-1-t.i:l:il-.J- �i Commumcatlon Lines ,;:� :?;: : Cable TV : Gas Mains :� ::� Electrical Lines :::?: :::::::: I I I .::: ::::: Sewa e Treatment :*: :: :: g ·: Electrical Generation !:· ��. II II Public ¥ac1lit1es :f;.· ::::: u.s. Rep. Districts ;:;:: :;:;: ::::: �::: :;:;:
School Districts :;:;:: 11111 ::;:; :;:� � Consolidated School Districts · ;:;:; lllil ;:; ; : ;:::· :: Aldermanic Districts Ill ;:;: :::;· 1$: :::� ?; : ::
Business Income :;:;: ::;:: ::::: I! ::::: Unemolovment :::: 11111 �::: Ill =�::: :::: II Crimes ::::· ::;:: 1111 Fires : 111111 x� : : Health Data :::::: ::::: :::::: ::::: :::: Votin Data :::::. Ambulang ce Service :::::: Social Services 11111 ::::: ::::: ::::: - - Permits and Lken Examples of Land Information Collection and Use in Wisconsin Wisconsin Land Records Committee: Final Report 3 THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS jj'cJ'.JJ�N:ill'�"''W«cjcJ�WQW-�'iW®i¢Xf®:l:IW2'''j!i�-'!:'.�it!S:1;;·t::mW&i«•:W«:: jJ!jJ'.'.jJW$'i!�oeeJe Jj !j'.jJje j'.!j ecc'.'.jJ j FACTS AND FIGURES The following statements illustrate the complexity of The cost of modernizing land records --of reducing land records maintenance in Wisconsin: these difficulties and inefficiencies -- is reasonable when one considers not only the benefits that would accrue, • Wisconsin has over parcels of 2,000,000 but the amount of money already being spent: land.3 • Wisconsin units of government and utilities • Wisconsin has 2,592 local and special collectively invest million annually in purpose units of government whose $80 ( 1976 dollars to maintain Wisconsin's existing jurisdictions overlap both politically and ) storehouse of land information.7 (With geographically.4 inflation,th is figure is now approximately$1 35 million.8 • Collectively, Wisconsin agencies and ) organizations have gathered and stored an • In 1981, the Wisconsin Department of estimated one billion pieces of land-related Administration considered the above information.s expenditure substantial enough to warrant an inventory to determine how much money • The Wisconsin Statutes contain over 600 Wisconsin state agencies spend to collect references to the collection, maintenance, and manage land information.9 and use of land information.6 Land records modernization is already occurring, but • At the county level alone, an average of ten without guidelines to ensure that the benefits are government officials per county produce, maximized. In fact, at present, little has been done to maintain, and/or use land records. For most manage and potentially curtail the enormous of these officials, there are several private expenditures that have been projected: sector professionals who perform similar • Local governments and utilities across the functions. (See tables of county, municipal, and town land information officers/agencies, Appendix C.) nation will spend between $45 and $92 billion by the year 2000 on information A plethora of government operations together with a systems to manage the nation's tremendous volume of land-related information make it infrastructure.10 difficult and inefficient to access and share existing land With the inevitable application of new technologies, information within and among Wisconsin's public and Wisconsin will undoubtedly follow this trend. private sectors. Wisconsin Land Records-Committee: Final Repolt 4 THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS �·:·:·:·:·=·�:-..:.:��--��:::-.i;,.;rn:r mr: rn�=mm :::m�:m: :a:::i: :: : mm:=;,.;: m1:rn:.?S®.::i·m.;�wmmrn;mrnm1mimmim�;:mm11� WHY CHANGES ARE NEEDED: Problems with the Status Quo Duplication of Effort A case in point is the group of 14 utilities, government Presently, public and private agencies and organizations agencies, and engineering firms in southeastern gather and maintain land information in many different Wisconsin that has been meeting for the past 20 months formats tailored to individual program needs and to develop a shared la'nddataba se. So far, despite the constraints. This results in: group's overall willingness to cooperate, neither the desired scale and accuracy requirements nor a cost • an inability to integrate various types of sharing formula for the database are agreed upon.11 information within an agency/organization, or to share it among different agencies; and Guidelines must be developed as new technology becomes available. Given the current haphazard • repeated collection of the same land development of land information systems, a lack of information by many different agencies. guidelines will impede efforts among government agencies, utilities, and the private sector to create a land Duplicate or similar land records emerge not out of information network. ignorance but, rather, due to the time-consu ming effort required to make geographic references compatible with Th e Current Land Records Expenditure one another. This in turn obliges agencies/organizations Despite an estimated annual per-citizen cost of $29 to to gather and store land information that already exists 2 elsewhere. From the taxpayer's point of view, this maintain Wisconsin's present land information base,1 reduces overall government efficiency. it is exceedingly difficult, cumbersome, and time consuming for citizens to gain access to much of this While a growing number of Wisconsin agencies and public information. Whether it is. accurate and up-to organizations are already investing significant resources date, once found, is often questionable. Yet citizens, ts> modernize the land records they produce and use, no developers, realtors, lawyers, appraisers, utility standards or guidelines exist for them to follow. (See personnel, and many others rely on this information Modernization in Progress, pages 8-9.) regularly. Problems with land information accuracy and A Lack of Guidelines currentness are not unique to Wisconsin. They are Guidelines are needed to modernize every aspect of inherent to current methods of gathering and storing land information processing. If land information systems land information, which are themselves cumbersome, proliferate without guidelines for their development, the time-consuming, and tedious. Wisconsin has the problems of data incompatibility and repeated collection expertise to use newly availabl� technologies to improve will become increasingly difficult, if not impossible, to these methods, but lacks a statewide program, such as address. the proposed Wisconsin land Information Program, to develop guidelines for improvement. Unless guidelines are developed soon, we can expect no more uniformity among future information processing With almost half of Wisconsin's current land techniques than among current techniques, and records investment (see Facts and Figures, page 3) information sharing will remain curtailed by: coming from local government,1a those • a wide variety of data scale, accuracy, and involved in modernizing land records at the precision needs; local level have repeatedly indicated a desire (See Modernization in Progress, pages • an absence of uniform approaches to for leadership. 8-9.) This desire was voiced by many of the local information coll�ction, storage, and access; government and private sector representatives on the and Committee, subcommittees, and task force, and was • an absence of institutional and cooperative reaffirmed by numerous contacts during the Committee's 22 months with other local government arrangements to facilitate agreement on officials. Many of these contacts followed the . standards for developing and using shared Committee's statewide public information meetings. land databases. (See Committee Organization and Activities, page 16.) Wisconsin Land Records Committee: Final Report 5 THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS Jj WHY CHANGES ARE NEEDED: Opportunities for Improvement Modernizing Wisconsin's land records to their land records do llars if Wisconsin optimizes its reduce duplication and allow sharing of land current land records expenditure. {See Facts and Figures, information would benefit Wisconsin's citizens page 3, and The Current Land Records Expenditure, page 4,) Consider the way in which the Universal Product Code by improving decision-making, equitability, allows grocery stores to automatically update their and efficiency in public and private sector inventory as every transaction is completed. With a functions involving land information. uniform, statewide code that uniquely identifies every land parcel, much land data could be indexed and Property taxation, revenue sharing, political districting, placed in the appropriate land record file as routine land land transfer, and compliance with land-related mandates records transactions are made. are just a few examples of such functions. Modernizing land records can: Decision-makers -- from the Executive Office to town halls -- depend on accurate and up-to-date information. • help offer Wisconsin a competitive Modern land information systems can meet this need by economic advantage; enabling decision-makers to easily use, integrate, and • display land information from multiple sources in a timely contribute to fairness and efficiency in manner. Modern land information systems can also property taxation; and provide policy makers with an effective tool for • developing more efficient services. help manage Wisconsin's wealth of resources. In general and over the long term, land records modernization has the potential to: Competitive Advantage • optimize Wisconsin's continuing investment Accurate, large-scale maps allow information to be in land information (see Facts and Figures, page 3); displayed in a manageable form. They provide a standard graphic base on which complex data set$ can • maximize the potential of Wisconsin's be displayed, compared, and acted upon by planners storehouse of land information by making it and decision-makers. As such, they are critical tools for more accessible, more accurate, and easier attracting economic development. A single map can be to use; and more convincing than an entire document in efforts to convince federal government, large corporations, • minimize duplication of effort by enabling industries, and developers of the suitability of a particular Wisconsin agencies and organizations to site. Easily accessed, highly usable, and as detailed as more easily share land information, thereby necessary, maps produced by modern land information eliminating repeated collection of the same systems can provide graphic evidence of such factors as location of markets, availability and proximity of labor and land information. raw materials, and special information such as geologic criteria. Modern iand information systems can help produce, integrate, and effectively display detailed information in a Example: The State of Illinois' Geographic timely manner to use it to its fu llest potential. Information System (GIS) can, on relatively short notice, produce maps that identify and describe Minimizing duplication of effort would help increase potential development sites. The GIS helped Illinois efficiency at alllevels of government, as information that provide timely evidence that it possesses a site with already exists at one agency would no longer have to be the qualities desired for the Diamond-Star automobile collected a second, third, or fourth time -- as often assembly plant. Similarly, the GIS will be an important happens -- to be usable by other agencies and tool in Illinois' bid for the U.S. Department of Energy's organizations. With the modest assumption that multibillion-dollar Superconducting Super Collider (a Wisconsin can reduce duplication of effort by ten particle accelerator), which will bring 3,000 high-paying , percent, an annual savings of $8 million (in 1976 do llars), permanent jobs to the community that can prove it or $13.5 million (in 1987 do llars) would result. has the· most suitable site. Citizens, agencies, and organizations could get more fo r 6 Wisconsin Land Records Committee: Final RepoJt THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS «:?sS:?:?:?Wsw��;zw;;S':E ;mm rn;; ;� W" �m�W"W"'W"11%W,."'i ; ; �«wSi'i%'%SW.... � W'SSSSi'ii"WB�ssus;w:sm WHY CHANGES ARE NEEDED: Opportunities for Improvement (cont'd) Fa ir and Efficient PropertyTaxation landfill site has been closed, and possibly forgotten. If a A uniform parcel numbering system could facilitate potentially harmful qr useful substance is put in the property taxation by making compatible the information ground, not only we, but our children and grandchildren needed by the many Wisconsin agencies and should know where and what it is -- particularlyin relation organizations that process assessment rolls. to other recorded information about natural resources, Compatibility of this information would simplify the the built environment, and human health. process of equitable assessment. Example: An explosion of migrated methane gas occurred not long ago at an apartment complex built Property valuation is complex due to the difficulty of obtaining accurate and complete information on property near a closed sanitaryland fill in Madison, Wisconsin. ownership, boundaries, and resource attributes. This The resulting injuries and property damage might costs local governments extra dollars, and sometimes have been prevented had it been possible to leaves the assessment function vulnerable to correlate the location of the closed landfill with controversy over equitability. building construction plans, geologic structure maps, and construction site details. The complexities of propertytaxation have an impact at Another Example: In 1986, the Governor of the state level when Wisconsin's largest budget items Virginia used an effective display of maps and other (Shared Revenues and School Aids) are distributed, as accurate, up-to-date land information to question the property valuation is a factor in the formula used to reliability of federal· government information used in determine their distribution. determining appropriate sites for high-level nuclear Example: An assessor often must use the factor of waste disposal. The federal government withdrew its soil type when assessing farmland property. Yet· proposal. comparisons between property ownership maps and Another Example: Recent state and federal maps that delineate soil type are difficult and time consuming, because such maps are rarely mandates have established programs for rural land compatible. Since it is virtually impossible to acquire management and protection. These include precise measurements, the assessor must use gross programs for farmland preservation and cross estimates and apply averages to values. compliance, farm commodity, soil erosion, non-point pollution, and conservation assessment and management provisions of the 1985 Farm Bill. All of Resource Management these programs require the same land records, and Wisconsin has a wealth of comprehensive land would benefit from access to a modern land records information. For example, the coverage,-and detail of system. Wisconsin's wetlands inventory is mo re complete than that of many other states. The Wisconsin Department of To maintain a reasonable cost of government, existing Natural Resources has automated this inventory in a form land information must be used more effectively to that can be shared with local governments, other state manage Wisconsin's resources. Land records modernization can make this possible. agen�ies, and private organizations. Accurate, large-scale maps and compatible attribute files Although it is difficult to quantify land records could help monitor and evaluate the migration of toxic modernization benefits in economic terms,14 the degree waste to ensure that Wisconsin's high-quality to which we can use better, more accessible land groundwater is preserved. Similarly, maps that integrate information to make better decisions will be the degree inform,ation about potentially dangerous landfill sites. to which the quality of life of future generations will could help eliminate the danger that stems from the benefit. current inability to monitor hazardous wastes once a Wisconsin Land Records Committee: Final Report 7 THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS WHY CHANGES ARE NEEDED: Trends Affecting land Records Modernization Current responsibilities for collecting and storing land Institutionaland Legal Trends information are based upon statutory authority, administrative ru les, and approximately 100 years of • Increasingly Complex Decisions. customary practice. Typically, these responsibilities were Today's governments face increasing challenges in developed and assigned for specific purposes, with no their responsibility to establish policy, manage day-to requirements for linking new data to existing data. day functions, and make decisions that require integration and simultaneous consideration of Until recently there was little reason to change the status information from many different sources. quo. Today, however, several technological and socioeconomic trends are compelling all levels of • Public Records Accessibility. government, most utilities, and many businesses in Wisconsin law requires a timely response by Wisconsin to focus considerable attention on government agencies to all reasonable requests for modernizing the land records they produce and use. public information. • Increasing Responsibilities. Th e Te chnology Push Local governments are becoming more responsible Recent technologies such as electronic for enforcing regulations formerly handled at the state databases, satellite global positioning, and or federal level. Many local governments struggling to remote sensing have a proven capacity to comply with state-imposed mandates lack guidelines substantially reduce the amount of time and and adequate funding. money spent gathering and maintaining Wisconsin property owners are legally required to certain types of land information.1s adhere to an increasing number of often complex land use regulations. This requires owners to obtain Example: Electronic scanning of soils maps, as information about their land which may, ironically, be opposed to manual digitizing, can reduce the time virtually inaccessible to the average citizen. spent by a factor of three.16 Under a 1980 federal law known as Superfu nd, financial lenders can be held liable after foreclosure Another Example: Traditional manual land survey for hazardous waste cleanup costs -- even if the techniques used to establish mathematical contamination occurred prior to foreclosure. The coordinates for geographic reference points require Superfund law can also rest cleanup responsibilities days and thousands of dollars. Newer surveying with anyone it defines as an "owner'' or "operator'' of a technologies, such as global positioning systems, hazardous waste site, including firms that held legal take hours and hundreds of dollars.17 title for as little as an hour during a title transfer. Recent Superfund amendments allow for a defense With or without a uniform plan for modernizing of ignorance of the contamination only after "all land records, Wisconsin agencies and appropriate inquiry" of previous site ow ners/operators has been conducted by the current ow ner -- requiring organizations are turning to recent information ·at least an on-site inspection.18 Those considered technologies to provide efficient records owners and operators under Superfund will want management. access to detailed land records to avoid a lawsuit that could result from a seemingly ordinary loan Computing technologies are becoming more accessible, agreement. more affordable and therefore more practical. These factors and the "vendor push" are causing many public • Accomplishing More with Less. agencies to adopt these technologies at an accelerated The "technology push" not only contributes to the rate, often before having a chance to adequately assess potentia l to do more with less -- it tends to make all of their needs. Statewide guidelines developed through us expect that we can accomplish more with less the proposed Wisconsin Land Information resources, in less time. Whether this expectation can Program would ensure maximization of the potential be realized is open to question. One thing is certain, these technologies offer for improved information however, about this trend as applied to land records: management. the constant challenge of attempting to do more with less, especially if it results in increased productivity, will require no less creative human effort than is needed today, even with computer technology. 8 Wisconsin Land Records Committee: Final Report THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS :·:<-:·:-:·:-=����.. ��(! ;::«&;::;::�...z: ..�::s::::i ;:::::-:-:-:-:-:-:-:::w4w.!:-:·7$mW*::;-:� A growing number of initiatives to modernize • Winnebago County uses specially designed land records attest to Wisconsin's capability to software for tax parcel maps and for soil and water apply new technologies in an effective and conservation planning. Several land information efficient manner, and to Wisconsin's potential layers have been put into a digital format. to be a national leader in modernizing land • Wisconsin Geographic Data Sharing records. Group. Since mid-1986, a group of state Depart ment of Transportation and Department of Below are examples of efforts to modernize land records Natural Resources employees have been meeting to in Wisconsin.19 explore common interests and ways to better share • The City of Milwaukee's MAGIC system, an existing land information needed by both agencies. automated mapping and geographic information The group is also developing an inventory of system, is used by many of the city's departments. It cartographic and geographic data maintained in a produces information to assist with daily operations as digital format by either agency. well as policy analysis. • Officials in several Wisconsin counties whose work directly involves land records have voluntarily formed • The Dane County Land Records Project study groups to explore possibilities for land records created an experimental land information system that modernization that are agreeable to all concerned. has been successfully used for soil and water Among the counties that have recently formed study conservation planning in fulfillment of state and groups are: federal mandates. (See page 12.) This led to the CONSOIL project in which additional system .. Brown County; applications are being tested. • Marinette County; and 1 • Burnette, Dodge, Door, Manitowoc, • Oneida County. Outagamie, and Vilas Counties have These officials include the Register of Deeds, purchased computer-aided design and drafting Surveyor, Real Property Lister, High�ay systems through their surveying, planning, zoning, or Commissioner, Conservationist, Planner, Zoning parks departments. Administrator, and Treasur.er in various counties. Although the same land records often pass through .. Dunn County employs a Land Records the hands of each of the above officials, their duties, Coordinator. in most cases, have not traditionally required them to work with one another in the past. .. Eau Claire County has reorganized its zoning, planning, and conservation departments in an effort While this list does not identify all of the land records to better manage its land records. modernization effo rts under way in Wisconsin, it does .. Racine County has developed a land parcel attest to an urgent need to coordinate these efforts. Most of the individuals involved in these efforts are identification system, and has automated property anxious for guidelines to be developed. Indeed, if land ownership and taxation information. information systems proliferate without guidelines or • The Town of Randall, Kenosha County, was standards to direct their development, the problem of the site of a pilot project conducted by the incompatible land data will worsen, defeating a major purpose of modernization. Southeastern Wisconsin Regional Planning Commission to demonstrate the feasibility of In Wisconsin, as elsewhere, most land information creating digital property ownership and taxation systems are developed primarily by a single agency or information that can be applied to comprehensive organization for specific, limited purposes. (To help view planning and zoning. Wisconsin's efforts in a national context, see Land Records Modernization Efforts Outside Wisconsin, Appendix D.) Wisconsin Land Records Committee: Final Report 9 THE NEED TO MODERNIZE WISCONSIN'S LAND RECORDS J ;: : ;: " :: >??'$ ". " : ::::: ::; MODERNIZATION IN PROGRESS (cont'd) These systems are often technologically driven, Only a permanent yet flexible mechanism such as the sometimes designed by vendors rather than users. proposed Wisconsin Land Information Program lndividuaf needs and constraints, along with the absence can guide the process of modernizing land records in of statewide facilitation, restrict the efficiency of these Wisconsin over the long term. otherwise outstanding systems. Without a state presence, there is a high ·risk that incompatible systems will proliferate, thereby diminishing the efficiency of any one system as well as the possibility of ever having an effective land information network in Wisconsin. WisconsinLand RecordsCommittee: Final Report 10 Wisconsin Land Records Committee; Final Repon 11 MU LTIPURPOSE LAND INFORMATION SYSTEMS �;;:z�::mmiw:: w m :::::::: rn::s: :: ;;: :: '""' : :: rn: : : m;; : ::: ' :;: ::: m:s : :; : :rn:s : :rn THE MULTIPURPOSE CONCEPT A LAND INFORMATION NETWORK The concept of Multipurpose Land Information A land information network in Wisconsin would Systems is based on the premise that the require many Multipurpose Land Information same land information is needed regularly by Systems rather than a single, state-managed many different agencies and organizations for system. many different purposes. Multipurpose Land Information Systems would be To be shared and used for many purposes, new and modern versions of the same land records "systems" that existing land information must be stored by an agency or already exist in Wisconsin agencies and organizations. organization in such a way that other users can access Land records custodians could continue to maintain the this information and integrate it with their own. This same data for which they are currently responsible, but would improve the accessibility of much information that the data would become easier to access, easier to use, is currently acquired only with considerable difficulty and and capable of serving many more purposes than in the significant expenditures of time and money. past. Multipurpose Land Information Systems require various, The multipurpose concept relies on a land information land information "layers," each containing a different type network employing the latest in automated information of information, and often, each maintained by different managment techniques.20 Multipurpose Land agencies and organizations, to be pinned or "registered" Information Systems must be compatible with one to a common geographic reference framework. Only another, if the stored information is to be shared among then can the layers be superimposed, integrated, and different agencies, organizations, and decision-makers manipulated -- mixed and matched to produce new throughout Wisconsin. While the technology needed to information as needed by Wisconsin's citizens, design compatible systems exists, the governmental and government officials, and others. other cooperative arrangements necessary to apply it are as yet undeveloped. This is a major reason to establish The essence, then, of Multipurpose Land Information the proposed Wisconsin Land Information Systems is the ability to link a multitude of land attributes, Program. often from many different sources and maintained by many different agencies, to a single geographic location By no means does the compatibility of land information or area -- thus eliminating the need for duplicate records. systems force land information to be shared, nor does it This concept is illustrated in the diagram on the following dictate any particular decision by those who use the page. information; rather, it makes possible the sharing of information between and among consenting public and private sector agencies, organizations, and decision makers. Wisconsin agencies and organizations now investing significant resources on land information systems will get more for their dollars if these systems are compatible with others throughout Wisconsin. 12 Wisconsin Land Records Committee: Final Repolt A. B. c. D. E. F. G. H. Concept for a Multipurpose Land Information System Section 22, TSN, R9E, Town of We stport, Dane County, Wisconsin Data Layers: Responsible Agency: A. Parcels Surveyor, Dane County Land Regulation and Records Department. B. Zoning Zoning Administrator, Dane County Land Regulation and Records Department. c. Floodplains Zoning Administrator, Dane County Land Regulation and Records Department. D. We tlands Wisconsin Department of Natural Resources. E. Land Cover Dane County Land Conservation Committee. F. Soils United States Department of Agriculture, Soil Conservation Service. G. Reference Framework Public Land Survey System corners with geodetic coordinates. H. Composite Overlay Layers integrated as needed, example shows parcels, soils and reference framework. The above figure illustrates some of the ingredients of Multipurpose Land Information Systems.21 Each layer represents actual information collected and maintained by government agencies for one particular square mile of land in the Town of Westport, Wisconsin. These records have been integrated in an experimental land information system developed as part of the Dane County Land Records Project. (For more information about this project, see Modernization in Progress, page 8.) Wisconsin Land Records Committee: Final Report 13 MULTIPURPOSE LAND INFORMATION SYSTEMS �««�::::i:�:�:��::m�3::�::::::s::m:::::::::::::!:S!::::::::::::::::::::::::;:::::::::::::::::i:::s::::::::::::n::::i::::a:m:::::m:::::::::::::::n:::::::e SYSTEM ELEMENTS There is general agreement that Multipurpose A statewide parcel indexing system assigns a Land Information Systems require four basic unique number to each land parcel (not unlike a unique elements: street address for each house). Record keepers can then code and easily match both graphic and tabular land • lnterrelatable geographic reference records to the appropriate ownership parcel. In turn, frameworks; decision-makers can integrate ·and manipulate land information any number of ways, and landowners can • Accurate, up-to-date, large-scale maps; readily access information about selected features of their property. • A statewide parcel indexing system; and • Standardized attribute files. Standardized attribute files help communicate information in such a way that land attributes can be evaluated efficiently and fairly. The records of these A geographic reference framework (also referred attributes may be graphic, such as a map of zo ned areas, to as a geodetic reference framework) provides the or tabular, such as a tax roll. A single land parcel may underpinnings of Multipurpose Land Information have many attributes that could be examined · Systems. Several different geographic reference simultaneously, if collected, stored, and updated systems are used to describe physical locations on the according to certain standards.24 earth's surface, but an interrelatable system is one in which the descriptions are mathematical and can Again, the essence of Multipurpose Land Information therefore be "translated" into other mathematically based · Systems is the ability to link attribute information (such as systems.22 All land information is virtually meaningless the cause and extent of damage of a traffic accident, the type without reference to a location or dimension above, on, and surface conditions of a road, or the value of a land parcel) or below the earth'ssur face; and it can be shared only if to the physical location or dimensions of the associated these geographic references are interrelatable. In fact, it point (such as the site of a traffic accident), line (such as a is a common geographic reference framework that "pins" road), or closed area (such as a land parcel). Once the together the various information layers of a Multipurpose attribute information is thus linked to various points, Land Information System. Not even state-of-the-art lines, and areas, it gains a common reference that allows computer technology can enable the sharing of land it to be shared. information that cannot be related to a common, mathematically based geographic reference An agency or organization might wish to modernize only framework.23 one or two Multipurpose Land Information System elements. Until all are modernized , however, the agency Accurate large-scale maps are critical for effective will be unable to eff actively integrate information from and equitable decision-making. Large-scale maps (maps other systems, and the land information system is likely that show a small area in detail) can serveas an effective to be to be incapable of serving multiple purposes. tool for the uniform display of many layers of information. These layers, when uniformly displayed, allow simpler and faster comparison of the areas and attributes of various sites. Wisconsin Land Records Committee: Final Report 15 THE WISCONSIN LAND RECORDS COMMITTEE PURPOSE OF THE COMMITTEE On August 7, 1985, then-Governor of Wisconsin · Committee, subcommittee, and task force members Anthony Earl signed Executive Order No.79, officially contributed their expertise and represented the establishing the Wisconsin Land Records perspectives of a diverse group of institutions: state Committee. The Committee's broad mandate was to: agencies, county, municipal, and town offices, regional planning commissions, utilities, businesses, and the Examine and address the immediate university. (See list of Committee, subcommittee, and task needs of state and local agencies force members, Appendix A.) regarding land records collection and management; and to In January 1987, Governor Tommy Thompson officially recreated the Committee, charge and membership Develop recommendations on how intact, with the signing of Executive Order No.1. The Wisconsin should approach the long Committee continued to examine land records issues term issues of land records and to refine its preliminary recommendations until July modernization. 1987, culminating in this final report. The geographical and professional diversity of the Committee's 32 members was intentional, and mirrors the breadth of land records issues as well as the complexity of the land records dilemma. Members of the Wisconsin Land Records Committee at their tenth meeting. WisconsinLand RecordsCommittee: FinalRepolt 14 WisconsinLand RecordsCommittee: Final Repolt 16 THE WISCONSIN LAND RECORDS COMMITTEE COMMITTEE ORGANIZATION AND ACTIVITIES Wisconsin land Records Committee SUBCOMMITTEE ORGANIZATION Chairman, Dr. James Clapp I Vice Chairman, Professor Bernard Niemann, Jr. I I I I BASIC ISSUES GROUP INFORMATION ISSUES GROUP MANAGEMENT ISSUES GROUP Facilitator Facilitator Facilitator Dr. D. David Moyer Ms. Christine Reinhard Professor Bernard Niemann, Jr. State Advisor on Multipurpose Coordinator, Consortium for the Assistant State Cartographer Land Information Systems Modernization of Land Records in Wis. CODES & STAT UTORY CLASSIFICATION .& STANDARDS CAPITALIZATION & FINANCING .... DATA REQUIREMENTS .... Mr. Myron Bacon, Chair .... OF DATA SYSTEMS Mr. William Chatterton, Chair Administrator, Wisconsin Dr. Bette Salmon, Chair Attorney, Ross & Chatterton Department of Transportation Dane County Treasurer INTER-AGENCY & INTER-GOVERN- BENEFITS & COSTS INSTITUTIONAL ARRANGEMENTS I- ..... MENTAL DATA PROCESSING ... Mr. Arthur Ziegler, Chair Ms. Carolyn Johnson, Chair State Cartographer Mr. Arnold Clement, Chair Aiderperson, City of West Bend Director, Racine County Planning & Development DATA RESPONSIBILITY, GEOGRAPHIC REFERENCE COOPERAT IVE ARRANGEMENTS .... MAINTENANCE & SECURITY ... STANDARDS .... Ms. Janet Price, Chair Mr. William.Huxhold, Chair Dr. Kurt Bauer, Chair Director, DNR Bureau of Project Manager, City of Milwaukee Director, SE Wis. Regional Planning Commission Information Management PROPERTY RECORDS EMERGING TECHNOLOGIES DEVELOPING MODEL RFP's .._ Ms. Barbara Crosser, Chair - ..... Mr. Arden Sandsnes, Chair Mr. Kevin Hagen, Chair Planning Consultant, Surveyor, Royal Oak Engineering Project Manager, Ayres Associates Engineers Barbara Crosser Associates & During its 22 months, the Committee undertook the • Completed a Strategic Planning Sequence, following activities: producing working papers to coincide with six of the sequence's seven st eps. (See Time Line for Activities, Organized subcommittes to cover basic following page.) issues, informa12tion issues, and management issues. (See Subcommittee Organization Chart, above). • Completed a Summary Report in 1986 The subcommittees involved the 32 Committee containing preliminary recommendations for land members as well as 60 more individuals who records modernization in Wisconsin.26 volunteered their time and energy. (See list of Committee and subcommittee members and their • Reviewed and approved Subcommittee affiliations, Appendix A.) 12 Reports. (See report descriptions,App endix B.) The subcommittees collectively held almost 100 meetings. In addition to enabling members to • Held nine Public Information Meetings address specific subcommittee missions, these throughout Wisconsin to inform and seek input from meetings helped foster a unified voice among citizens and professionals about the proposed Wisconsin's concerned land records professionals. WisconsinLand lnfonnation Program.27 • Met 20 times.2s The Committee's time span • Compiled a wealth of information on the afforded it the opportunity to fully explore status of land records and modernization, including alternatives proposed by individual members. Over an update of a 1981 Wisconsin Department of the course of Committee meetings, members were Administration study of state agency expenditures able to,reach consensus to the degree that minority for collecting land information. (See Report No.9, reports were considered unnecessary. Appendix B.) Wisconsin Land Aeeords Committee: Final Report 17 THE WISCONSIN LAND RECORDS COMMITTEE �'m�m?:?e:;j Ds:i: ::: rn:m : :rn : Hg : :: : ®''*""' 'Wm:: :::� COMMITTEE ORGANIZATION AND ACTIVITIES {cont'd) Substantial progress has been made toward : of County Land Information Units be encouraged. " a Glossary of land information terminology; (See County Land Information Units, page 29.) A list of task force members is found in Appendix A. Their " a statewide Survey of land information user report is described in Appendix B (Report No. 13). and provider needs; and " a Bibliography of land records modernization • Cooperated with the Wisconsin Land literature. Information Coalition, an independent The Committee assumes the Wisconsin Office of association of concerned professionals whose work Land Information, when established, will continue the involves land records (see page 31). In keeping with its above activities. (See Office of Land Information, recommendation that such an association be created, page 25). the Committee supported the concept of the Coalition's establishment and has encouraged • Organized a Task Force on Local membership. Institutional Arrangements to expand upon the Committee's recommendation that the establishment Wisconsin Land Records Committee TIME LINE FOR ACTIVITIES 1985 . 1986 1987 s:: - ::i ::i '"") '"") MEETING DATES 20 12,v 14 13 14 13 18 19 18 8,25 6,25 12 7,23 17 26 25 ORGANIZATION OF rTIVITIES 1 7STEP STRATEGIC PLANNING SEQUENCE Step 1: Assess Current Situation and Identify Problems li-----t Step2: Identify Strengths and Weaknesses of Current Situation i-----1Step 3: Develop and Clartty Goals and Objectives Step 4: Identify O�tions and Alternatives for Achieving Goals and Objectives i-----1 Step 5: Develop and Clartty Criteria Step 6: Select Alternatives i-----1 Review Subcommittee Reports (!] SUMMARY REPORT PUBLIC INFORMATION MEETINGS Public Review and Comment Waukesha La Crosse I Task Force on Madison Eau Claire Local Institutional Arrangements Milwaukee Stevens Point Superior Green Bay l!J Woodruff FINAL REPORT WisconsinLand RecordsCommittee: Final Report 18 THE WISCONSIN LAND RECORDS COMMITTEE ' ' : '?' ""SS'< : : :: :::mi LAND RECORDS MODERNIZATION GOAL AND OBJECTIVES Modernizing Wisconsin's land records to • Economic Objective: create Multipurpose Land Information Systems To develop new and existing public and private would benefit Wisconsin's citizens by revenue sources and create incentives to maximize improving decision-making, equitability, and benefits and minimize costs. - efficiency in public and private sector functions • Institutional Objective: involving land information (as described in Opportunities for Improvement, pages 5-6). To develop professional standards and cooperative arrangements among public and private agencies, To do so, Wisconsin must accomplish the following including utilities. overall land records modernization goal: • Legal Objective: Develop, implement, and maintain To resolve omissions, duplication, and compatible Multipurpose Land Information inconsistencies in constitutional authorities, laws Systems that provide useful, quality data and statutes, and administrative rules that hinder needed by Wisconsin's citizens, agencies, the overall goal of modernizing land records. and private sector. • Technical Objective: These systems must be effectively anq To promote technically sound procedures and efficiently supported by economic, legal, practices that foster modern, efficient mapping and institutional, technical, and educational database management. To use these procedures frameworks. to establish a geographic reference framework, and to create a land information network among the The following objectives, when achieved, will support private sector, utilities, and all levels of government. Multipurpose Land Information Systems and foster the , sharing of land information. • Educational Objective: To promote educational, research, and outreach The need to achieve each of these objectives reflects efforts toward development and evaluation of the scope and complexity of the long-term land records supporting software, hardware, and personnel. modernization process. Wisconsin Land Records Committee: Final Repott 19 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM !SS;·.;p:::::;.;;:::;:::::::::u;x rn: : "';;m:::;.;n::p;;mswP:�%::?:Wo/:W:'mWmJWWM:'i''*'i'wt;,;,wn:1:i<: : : ;:: ; : ; ; ; :smm:m:9 AN OVERVIEW The Wisconsin Land Records Committee formally recommends to the Governor the establishment of a Wisconsin Land Information Program. The. · diagram below illustrates relationships among Program components, and between Program compon ents and land information producers and users . Wisconsin Land Information Program Governor/Legislature I-+ * Wisconsin County Land Information Board Land Information .. ·• 4��, Office Units of Land Information i Grants-In-Aid Program i I I i Professional Private Federal State County l Utilities Municipal Associations Sector Government Government Government Government �w�� KEY: statutorily established independently established lines of influence Program Intentions • Immediately: Review current methods of land records collection The Wisconsin Land Information Program is a and maintenance, and provide technical assistance to long-range strategic mechanism by which Wisconsin can public agencies seeking to improve these methods. guide the development of modern , efficient Assist with modernization activities that encourage Multipurpose Land InformationSystems. The Program the development of Multipurpose Land Information also offers a flexible process through which to implement System.s. and maintain these systems. • In the Shon Term (within the first five years): The Program will enable Wisconsin to meet the land Help local and state government agencies modernize records modernization goal set forth by the Committee. land records in ways that will be consistent with (See page 18.) eventually adopted statewide guidelines. The following overall program intentions are grouped • In the Long Term (within the next five to ten years):· into a time frame based on an evolutionary, guided Continue these activities with an emphasis on approach toward statewide development of developing_ and adopting guidelines for Multipurpose MultipurposeLand InformationSystem s: Land Information Systems. WisconsinLand RecordsCommittee: Final Report 20 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM AN OVERVIEW (cont'd) Program Components The Committee recommends that the The diagram on page 19 illustrates the relationships Wisconsin Legislature establish a Wisconsin among these components. Each component is described in detail on the following pages. Land Information Program with the following · components: Housing Agency • Land Information Board; The Board and Office will be attached to the University of • Officeof Land Information; Wisconsin System for purposes of administrative support • Grants-In-Aid Program; only. • County Land Information Units. The Committee believes the University provides "neutral ground" for a program that involves numerous government agencies as well as private enterprise. The Board will establish and direct overall Program policy. The intention of housing the Wisconsin Land Information Program in an existing agency is to increase efficiency The Office will administer programs developed by the and reduce bureaucracy. The University as a housing Board. agency will be solely an administrative channel for the Board and Office, providing physical space and basic The Board and Office will constitute a single overhead services under contract to the Board. institutional entity, with joint responsibility for fulfilling overall program intentions (as described on page 19}. To ensure autonomous functioning of the Board and Office, the Board will develop an appropriate budget The Grants-In-Aid Program will help fund over which it has sole authority. As the Wisconsin land development of local and regional Multi urpose land Information Program will be a discrete entity with a Information Systems, and will provide technicalp statewide mission, the budget of its Board and Office will assistance. · be unaffected by fluctuations in the University's budget. Similarly, the University's overall budget will be Each Wisconsin county will choose whether or not to unaffected if funding for the Wisconsin land Information establish a County Land Information Unit to Program is reduced for any biennium. Appropriate provide a defined link between the Program and local arrangements for establishing and managing this government. housing relationship should be developed with the University of Wisconsin System. A fifth Program component is a non-governmental Land Information Association, independently rather than legislatively established by individuals and groups who advocate land records modernization. Such an association might monitor the activities of the Board and Office, collaborate with them on related efforts, and be called upon as necessary to assist the Governor, the Legislature, or any component of the Wisconsin land Information Program in addressing land records modernization issues. Wisconsin Land Records Committee: Final Report 21 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM LAND INFORMATION BOARD Wisconsin Land Information Program County Land Information Units .. Office of Land Information � Grants-Jn-Aid Program Professional Private Fede.cal State County Municipal Utilities Associations Sector Government Government Government Government 1::::::::::::::::::::.- --·- KEY: statutorily established independently established lines of influence D(;Jscription Immediate Tasks: The Land Information Board will be the overall policy · body o.f the Wisconsin Land Information Develop a Grants-In-Aid Program for land records governments, and review Program. The Board will work closely with the Office of modernization by local all grants. {See Grants-In-Aid, page 27.) Land Information, whose staff will help implement Board policies. • Establish a statewide inventory of land records, land information systems, and modernization efforts. Purpose • Help state agencies determine their capabilities and potential roles in a statewide land information The Board will be responsible for developing policy as network. well as programs to implement and evaluate that policy. • Identify and pursue sources of budgetary support and Board programs will be designed to address a number of cooperation among public agencies, utilities, and the general tasks, given below.28 To determine priorities, the private sector for pilot and demonstration land Committee divided these tasks into those to be records modernization projects. addressed immediately (upon establishment of the • Advise the Governor, Legislature, and state agencies Program), in the short term (within the next two to five years) , on programs and budgets affecting land information. and over the long term (beginning within the next five to ten Prepare an annual report. years). This time frame assumes resources will be limited. Land records improvements will accrue more rapidly if • Support educational, research, and outreach efforts resources allow these tasks to be accomplished sooner. that promote land records modernization. 22 WisconsinLand RecordsCommittee: Final Report RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM :a:®·�·� : :rn : :m: rn::::::: : : : :: :: : :: m ::rn : ::: ;; ;; Er:n::: l>'WWS LAND INFORMATION BOARD (cont'd) Short-Term Tasks: (a) State government representativeswill come from • Provide guidelines for coordination, "networking," the four state agencies whose land information and improved management of land records, including needsand responsibilities are mostpervasive at geographic reference framework standards that the time of appointment. permit land areas to be identified by coordinates Currently, the Committee suggests that these specific to the ownership parcel level. agencies are the Department of Natural Resources; the Department of Revenue; the 11 Establish a geographic reference framework for Department of Transportation; and the Multipurpose Land Information Systems that includes Department of Agriculture, Trade and a system of permanent land survey monuments. Consumer Protection. 11 Recommend and assist with the development of Given that the land information needs and Multipurpose Land Information Systems tailored to responsibilities of Wisconsin's various state the varying needs and constraints of rural and urban agencies could fluctuate over time, other state governments. agencies may be considered for representation on the Board when the • Establish task forces as needed to address specific staggered terms of the initial representatives land information issues. end. 11 Resolve specific issues identified by the Committee State agency appointees should be the and subcommittees, considering as a starting point secretaries or deputy secretaries of their the recommendations contained in the reports of the agencies. WLRC subcommittees, where applicable. (b) Local government representatives will be selected .. Recommend legislation as needed to accomplish any from town, municipal, and county governments, of these tasks. and from regional planning commissions. (c) Private sectorrepre� ntatives will include at least Long-Term Tasks: one utility appointee and possibly one from a non • Resolve new land information issues as they arise. governmental professional land Information association. (See Association, page 31.) 11 Resolve legal and administrative discrepancies pertainingto land information. • Board appointees will serve six-year, staggered, II Monitor the effectiveness of Board programs by renewable terms. continual review. The Board will elect its chairperson on a rotating basis to a two-year, non-renewable term. Structure The Board's non-voting executive secretary will be the director of the Office, to provide a strong Board representatives will be appointed equally from supportive link between the Board and the Office as among state agencies, local governments, utilities, and well as continuity throughout changing Board the private sector. There will also be a balanced number chairpersons. of rural and urban representatives and, to the extent practical, balanced representation of Wisconsin's • The Board or the Governor should appointadditional different geographical regions. The following Board ex officio, non-voting Board members to include: structure will ensure an institutional balance. • a representative from the Wisconsin Department of • 12 Governor-appointed members, with Administration; four each from: • the President of the University of Wisconsin System; (a) state government; 11 representatives from other Wisconsin state (b) localgovernment and agencies that actively process land information; regional planning commissions; and (c) utilities and the private sector. 11 representatives from interested federal agencies and adjacent states. Wisconsin Land Records Committee: Final Repott 23 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM LAND INFORMATION BOARD. (cont'd) Specific Issues to Address The specific land information issues described below are The Wisconsin Land Records Committee believes representative of several such issues identified by the that statewide coverage of essential survey Committee, subcommittees, and task force. One of the information in a digital format is necessary as soon as Board's short-term tasks is to resolve such issues. As a possible. It endorsed the acquisition of a digital line point of departure, the Board should first and foremost graph for the Public Land Survey System, to consider the recommendations of the subcommittees incorporate the best data available at the time of input, and task force regarding these issues. from whatever source, with the, understanding that more accurate, precise, or detailed data, if and when • Inventory and Management of State-Owned available, should be incorporated. The digital line Lands. Wisconsin has not completed an invehtory graph could provide a beginning basis for a common, of public lands since the early 1970's. Even then, statewide geographic reference framework. (See only parcels of 160 acres or more were included. explanation of geographic reference frameworks, page 13.) Much of Wisconsin's state-owned land i$ thus The Board should lead the effort to acquire a digital unaccounted for or poorly mapped. An inventory of line graph for Wisconsin. state-owned lands is essential to determine the land's best possible use, and to be prepared to take • North American Datum of (NAO 83). advantage of economic development opportunities. Recently the National Geodetic Sur1983vey (part of the A lack of accurate, up-to-date land inventory National Oceanic and Atmospheric Administration, U.S. information is a problem for many states. For Department of Commerce) finished adjusting the example, two recent reports by the State of California 250,000 land survey measurement points that conclude that it is missing over $160 million worth of comprise a national network.29 NAO 83 assigned new potential economic opportunities due to under mathematical coordinates to all surveymo numents in utilization of state-owned lands. The reports attribute the national network, replacing those assigned by this to shortcomings in the state's property NAO 27 more than 50 years ago. Many government management program, such as a lack of agencies are using the new NAO 83 coordinates to accountability. Several states such as Illinois have replace the NAO 27 coordinate network. Many other developed land inventory and management programs land survey information users, however, question and are applying them in areas such as industrial whether the increased accuracy and coverage of the waste siting and economic development. (For details new datum are worth the potentially substantial about such programs see Opportunities for Improvement, conversion costs. page 5, and Land Records Modernization Efforts Outside The Board should evaluate the benefits and costs of Wisconsin, Appendix D.) conversion to NAO 83 in Wisconsin. If the Board The Board should develop a program to inventory concludes that the benefits warrant the costs, then it and evaluate Wisconsin's public lands. should develop procedures to fund and implement the datum conversion. • Digital Line Graph for Wisconsin. A digital line graph provides approximate coordinates for all Public • State Statutes Affecting land Records. In Land SurveySys tem section corners in an automated fulfillment of its mission, the Subcommittee on Codes format that allows for computer storage. & Statutory Data Requirements initiated research to identify key provisions of the Wisconsin Statutes that Wisconsin's Topographic Mapping Advisory affect land records. The resulting document, Committee recently proposed the acquisition of a Wisconsin Statutes Affecting Land Records, consists statewide digital line graph, with initial use of data of over 600 statutory references to land records. (See obtained from the just-completed statewide series of Report No. 1, Appendix 8.) 1 :24,000�scale, 7.5-minute topographic maps. State agencies and others have already had considerable The Board should analyze the identified statutory discussion on such issues as costs and cost-sharing references for inconsistencies, conflicts, and possibilities for a Wisconsin digital line graph. oversights that must be amended to facilitate the modernization of Wisconsin's land records. WisconsinLand RecordsCommittee: Final Report 24 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM LAND INFORMATION BOARD (cont'd} Additionally, in accordance with recommendations in • Property Value Assessment Implications. the foreword to Wisconsin Statutes Affecting Land The process of property valuation for tax purposes is Records, the Board should sponsor research to complex. Missing or inaccurate data on property identify provisions in the Wisconsin Administrative ownership, boundaries, and resource value can result Code, the United States Code, and the Code of from incompatibility of the different formats used to Federal Regulations that affect land records. maintain this data by different agencies· and organizations. The problem of data incompatibility • Federal and State Mandates Affecting Land increases the cost of assessment as well as the Records. The December 1986 report of chance of inequities. Many assessors believe Wisconsin's Governor-appointed Task Force on modernizing land records will improve the quality of the information they need to assess property value, County and Local Mandates notes a number of · mandates that affect local land records management. and will lower the cost of the process. (see also Fair These include programs related to farmland and Efficient PropertyTaxa tion, page 6.) preservation and erosion control, cross-compliance, The Board should ensure that land records are conservation aids, on-site private sewage system modernized in a way thatbenefits the property inspection, floodplain/shoreland mapping and valuation process. Toward that end, the Board zoning, real estate transfer tax fees, review of should review the report of the Wisconsin Property assessment practices, full-value assessment, Tax Relief Commission, when complete. accident reporting forms, and replacement of lost survey monuments. The Board should review the above report and evaluatethe impacts of existing mandateson local land records management. Wisconsin Land Records Committee: Final Report 25 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM ;;; j: jJJ j : ; rn::: 1 rn g;; : : ;: :; mm: OFFICE OF LAND INFORMATION Wisconsin L�nd Information Program I Governor/Legislature j+ - -� I * Wisconsin County Land Information Board Land In formation Units .,.1 111!1!1111l.��!.!.��Ei?d�!.?'�[�1r31li1:::�::: Grants-Jn-Aid Program Professional Private Federal State County Municipal Utilities Associations Sector Government Government Government Government i::::::c:::e::::::::::cc: �i.---- KEV: statutorily established independently established lines of influence Purpose The Office of Land Information will administer programs • Serve as a clearinghouse for land information developed by the Board. inquiries. In support of the Board's policies and programs, the • Help state and local governments integrate land Office will provide facilitation, consultation, and advisory information for decision-making on policy issues such services to state agencies, local governments, regional as siting major industrial developments and nuclear planning commissions, and the private sector. waste respositories, monitoring groundwater pollution, and controlling soil erosion. Above all, the Office will serve as a clearinghouse • Work with professional associations, federal designed to respond to questions on how to obtain land agencies, state agencies, and the university to information managed by a variety of agencies and develop educational materials and conduct training organizations. programs. . As directed by theBoar d, the Office will: In the Short Tenn: Immediately: Ensure development of a statewide land information • Administer the Grants-In-Aid Program. {See Grants-In network, including the interchange of standards Aid, page 27.) between systems. Provide technical assistance to local governments In the Long Term: with land records responsibilities. • Assess the impact of state-of-the-art technology on • Maintain a current inventory of land records and land records management. modernization efforts in Wisconsin. Wisconsin Land RecordsComm ittee: FinalRepott 26 RECOMMENDATIONS:·THE WISCONSIN LAND INFORMATION PROGRAM �<1.·:m«<�;rn ::rnm::"rnm:: ;; rn:::rnm ; nm ;:;; g ;::rn: w�.w.mu/P.&«mmt"S:im ::: rn·m::::: : w.srw:;:rnm n: ; ; :::r:::::; w OFFICE OF LAND INFORMATION (cont'd) State Cartographer's Office Full- Time Staff The office of the State Cartographer will merge with the The Office director will be selected by the Board and will Office of Land Information to avoid duplication of effort in serve as the Board's executive secretary. Office staff, in their related functions. The statutory language for this addition to existing State Cartographer's Office merger should uniquely identify the position of the State personnel, will be hired by the director to include, as Cartographer and separately list the duties of that appropriate, an assistant director, specialists, and clerical position to assure that the full statutory function of the support, totaling the equivalent of three full-time State Cartographer, as well as the associated researchl positions. development, and outreach missions, are preserved within the Office of Land Information. Uaisons Department ofAd ministration The Office will encourage state agencies with land · information interests to provide the Office with technical To avoid duplication of effort, the Wisconsin Department staff. Possible arrangements for such liaisons include in of Administration's responsibility for coordinating land kind assistance or direct assignment by the state agency. resource data under Wisconsin Statute 16.967 will be The Office will encourage similar liaisons with regional transferred to the Office of Land Information. planning commissions, federal agencies, utilities, and the private sector. Wisconsin Land Records Committee: Final Repmt 27 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM Pi! J ::rn : 3 rn i : iJ m GRANTS-IN-AID PROGRAM Wisconsin Land Information Program m m ...... ,______.,...! Governor/Legislature I+ * : Wisconsin County Land Information Board Landln fonnation Units Office of Land Information Professional Private Federal State County Muni cipal Utilities Associations Sector Government Government Government Government �-�� KEY: statutorily established independently established lines of influence Purpose A Grants-In-Aid Program will aid in the development of intent to follow guidelines, once established, that foster local arid regional Multipurpose Land Information the development of Multipurpose Land Information Systems. The Grants-In-Aid Program will include Systems. technical assistance to local governments undertaking any degree of land records modernization. Each grant will require an equal or g.reater in-kind or dollar match. Local, private, and other non-state sources will provide these matches. Operatio n The Wisconsin Land Information Program The Grants-In-Aid Program will be developed by the budget will provide about $450,000 annually for the Board and administered by the Office. The Board will Grants-In-Aid Program. Another $450,000 in matched review all grant proposals. amounts (as described above), will bring the total amount available for the Grants-In-Aid Program to at least Any local unit of government will be able to apply for $900,000. grants. The Board will determine criteria for grant eligibility. One suggested criterion is a willingness and Wisconsin Land RecordsCommittee: Final Report 28 Wisconsin Land Records Committee: Final Report 29 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROG RAM COUNTY LAND INFORMATION UNITS Wisconsin Land Information Program Governor/Legislature • - m- � i I Wisconsin Land lnfonnation Board Office of Land Information Grants-In-Aid Program Professional Private Federal State County Municipal Utilities Associations Sector Government Government Government Government 1m:c::::::c:mm::::: -� -- KEY: statutorily established independently established lines of influence Descrip tion • state government; • regional planning commissions; Each of Wisconsin's 72 counties will be encouraged to establish a County Land Information Unit, to facilitate • federal government; participation in the Grants-In-Aid Program and to provide • utilities; and a link between local government and the Wisconsin Land • businesses. lnfonnationProgram. Structure Purpose Each county that designates a committee, office, officer, Becaus.e of the importantdetai l it affords, the land or the like, will be able to structure this "unit" to best suit its capabilities and priorities. It is suggested that the unit ownership parcel is arguably the most fundamental level at which land data is collected. Since most data atthis include, at the county's discretion, the land records level is managed by local governments, the County Unit functions of the Register of Deeds, Surveyor, Planner, Zoning Administrator, Tax Lister, Conservationist, and would be crucial to a statewide land information network, others, as appropriate for the given county. (See County and would: Land Information Processing, Table 1, Appendix C.) • Serve as the primary contact point for land information issues between the omce and local government; County Units should work closely with towns, villages, and cities within county borders that wish to modernize • Apply to the Grants-In-Aid Program for assistance in their land records. A municipality seeking assistance to funding land records modernization projects, and modernize its land records will be able to submit a grant assist municipalities, businesses, and small utilities proposal to its County Unit, if one exists, or to apply within its jurisdiction in applying for grants; and directly to the Grants-In-Aid Program.30 • Assist with land records modernization projects among local governments and between local government and: 30 Wisconsin Land RecordsCommittee : Final Repott Wisconsin Land Records Committee: Final Report 31 REC OMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM ; : :s::: : 3 iJjJ :mmf:>'SSJ*I W&:"c'. rer@ ;; �i:?W'rr jJjj ?S??S?S? LAND INFORMATION ASSOCIATION Wisconsin Land Information Program Governor/Legislature • mo om � I � Wisconsin County Land Jnfonnation Board Land lnfonnation ...... Units Office of Land Information Gran ts-Jn-Aid Program Professional Private Federal State County Mu'nicipal Utilities Associations Sector Government Government Government Government i=:cm:c::::::mm:m -l2Sl!l·- � KEY: statutorily established independently established lines of influence Description Purpose In its Summary Report (October 1986), the Committee The Coalition's mission is to foster the development, strongly advised that individuals and groups with land operation, and maintenance of a network of statewide information concerns and responsibilites establish an land information systems. Towards that end, it plans to independent, non-governmental association focusing focus on the following activities and corresponding on land information in Wisconsin. Such a group, the results: Wisconsin Land Information Coalition, now exists.31 • "Networking": An exchange Professionals from other independent associations, of information and ideas among professionals and other land information users. from town, municipal, county, state, and federal government, from private companies, and from utilities • Technical Research: have joined the Coalition to continue the efforts of the A forum for examining new land information Consortium for the Modernization of Land Records in developments. Wisconsin.32 The Coalition intends to build upon the momentum generated by the Committee to promote • Education: land records modernization. Programs and materials on land information issues. • Political Action: The Coalition is likely to informally influence the A unified professional voice promoting land Wisconsin Land Information Program, although no formal information improvements. legislative link will exist between the two. It is possible the Coalition will be represented on the Land Information Board. The Coalition should cooperate with the Office of ) Land Information on related efforts. 32 Wisconsin Land RecordsCommittee: FinalReport Wisconsin Land Records Committee: Final Report 33 RECOMMENDATIONS: THE WISCONSIN LAND INFORMATION PROGRAM m::s ; ::: : :: : m :::: ::: :: :: : : ::rn :: rn :::: :::: : :: :s rn : : :::: mm :: : us: mrnS! FUNDING Since property owners will be major benefactors of The Committee suggests an initial budget of $868,000 per year for the Board, the Office, and their programs. improved land records, it is appropriate that a small portion of the Real Estate Transfer Tax already collected The budget will be approved by the Board and managed by the State be used to help fund these improvements. by the Office. The Wisconsin Legislature should consider the following It is suggested that the $600,000 from transfer tax revenues be segregated for the Wisconsin Land funding sources:33 Information Program. Ofthis $600,000 per year: • Reappropriation of the that supported the $106,000 • would partially fund Board and Office Wisconsin Land RecordsCommittee for each year of $150,000 operations; and remaining funds of approximately the biennium (i.e., a request for $106,000 in new 19gener85-87al pur pose revenue funds) . These funds were • would help fund the Grants-In-Aid provided by the Legislature and administered by the $450,000 Program. University of Wisconsin-Madison. (Each grant will require an equal or greater in-kind or • An existing $162,000 to continue and preseave the dollar match from local, private, or other non-state position and full statutory function of the State sources.) Cartographer within the Office of Land Information (i.e., a transfer of existing general purpose revenue funds) ; This suggested budget is illustrated below. and • Reallocation of $600,000 of the State's current share of Real Estate Transfer Tax revenues (i.e., a reallocation of one cent per $100 value) .34 PROPOSED BUDGET POTENTIAL SOURCES Annual Budget To tal: $868,000 Board and Office Qperations: $106,000 GPR Reappropriation of Wisconsin Land Records Committee Provision $162,000 GPR State Cartographer's Office $150,000 SEG Real Estate Transfer Tax Total: $418,ooo Grants-in-AidProgram: $450,000 SEG Real Estate Transfer Tax Total: $450,000 Perma nent Positions: 3FTE State Cartographer 3FTE New Authorizations Total: 6 FTE GPR =general purpose revenue; SEG = segregated funds; FTE =full-time equivalent positions. 34 Wisconsin Land RecordsComm ittee:Final Re pott Wisconsin nd Records Committee: � Final Repo11 :35 INTO THE 21st CENTURY: A STRATEGY TO MANAGE CHANGE Those involved in today's efforts to modernize land The Committee envisions land records modernization as records must realize that current land records problems a dynamic, evolutionary process rather than a are in part historical. Yesterday's land administration revolutionary one. Technology, for example, is sure to procedures developed as they did for good reasons. change during this process, and the Wisconsin Land They were not, however, designed to accommodate Information Program is designed to evolve as changing laws and technology. necessary to manage this change. The Committee realizes that many of the changes Wisconsin is fortunate to have the capability to needed to modernize land records cannot arid should assist and guide the process of statewide land not be made overnight. Rather, new technologies and legislative changes must be adopted gradually, and records modernization over the long term - certain changes in administrative procedures should be and the potential to create an effective, based upon successful economic and technical efficient land information network for centuries precedents. to come. A large perc.entage of society's information needs are land-related; therefore, a continued inability to connect much of this information to its location on the land will hinder policy making and land management in the daily operation of our society. Information and surveying technologies are becoming increasingly available and affordable as a means to address many aspects of land records modernization. (See Trends Affecting Land Records Modernization, page 7.) Interactive computer graphics, telecommunciations, database management systems, and satellite systems for extremely accurate global positioning are a few of the applicable state-of-the-art technologies. 36 Wisconsin land RecordsCommittee: Final Report Wisconsin Land Records Committee: Final Report 37 REFERENCES AND NOTES 1. Jack Dangermond and Carol Freedman, "Findings 14. The r�port of the WLRC Subcommittee on Benefits & Regarding a Conceptual Model of a Municipal Data Base Costs discusses ways to carry out benefit/cost analyses and Implications for Software Design," in Seminar on the of modern land information systems. Multipurpose Cadastre: Modernizing Land Information Systems in North America, ed. Bernard J. Niemann, Jr., 15. The report of the WLRC Subcommittee on Emerging Institute for Environmental Studies Report 123 (Universtiy Technologies includes a discussion on the impacts of of Wisconsin-Madison, 1984), pp.1 2-49. Also, "lnivitation recent and upcoming technologies on land records to Information," 1986 brochure by the Municipality of modernization. Burnaby, British Columbia, Canada. 16. N. R. Chrisman, "Effective Digitizing: Advances in 2. The diagram on page 2 is adopted from the reportof the Software and Hardware," Technical Papers of the 1986 WLRC Subcommittee on Data Responsibility, ACSM -ASPRS Annual Convention (American Congress Maintenance, & Security. Reportsby the WLRC on Surveying and Mapping and American Society for Subcommittee on PropertyRecords and the Task Force on Photogrammetry and Remote Sensing, 1986), vol.1, pp. Local Institutional Arrangements contain additional details 162-171, as referenced in: N. R. Chrisman et al., "Soil on land records collection, maintenance, and use in Erosion Planning in Wisconsin: Order of Magnitude Wisconsin. Implications of Integrating New Technologies," in Papers from the 1986 Annual Conference of the Urban and 3. U.S. Bureau of the Census, "Taxable Property Values and Regional Information Systems Association, Denver, Assessment-Sales Price Ratios," 1982 Census of vol.1, pp.117-128. Governments (Washington, D.C., 1982), vol. 2, p.13. 17. Chrisman et al., "Soil Erosion Planning" (note 16). 4. Wisconsin Blue Book, 1968, pp.13-18. 18. Roger D. Schwenke, "Lender Liability for Hazardous 5. Each of Wisconsin's two million land parcels has any Waste Cleanup Expenses," Probate & Property, January/ number of attributes associated with it besides ownership February 1987, pp.43-47. and valuation (e.g., census data, flood-prone zoning, political districting). This could easily aggregate to more than a 19. The report of theTask Force on Local Institutional billion pieces of information to be collected and managed. Arrangements contains a more complete list and several detailed case studies of local-level land records 6. These references are described in Wisconsin Statutes modernization efforts in Wisconsin. Affecting Land Records, the report of the WLRC 20. The report of the WLRC Subcommittee on lnteragency and Subcommittee on Codes & Statutory Data Requirements. Intergovernmental Data Processing("Networking") 7. Barbara Larsen et al., Land Records: Th e Cost to the features a conceptual model for a statewide, interagency, Citizen to Maintain the Current Land Base: A Case Study cooperative land information network. of Wisconsin, (Wisconsin Department of Administration, 1978), p.23. 21. This diagram was prepared by the Land Information and Computer Graphics Facility, University of Wisconsin 8. The inflation f acfor used was 1.6975, based on the Madison College of Agricultural and Life Sciences and Consumer Price Index. School of Natural Resources, with support provided by the Gordon H. Barker Fund of the University of Wisconsin 9. The report of the WLRC Subcommittee on Capitalization & Foundation. Financing contains an update of this inventory. 22. Throughout the United States, land survey monuments 10. Automation, Inc., 1986 Intelligent Infrastructure Market (wood or metal markers placed in the ground by surveyors) are Report. Automation, Inc. is a private market research used to mark points of scientifically controlled firm. measurement upon the earth's surface. When these monuments are assigned mathematical (x,y) coordinates, 11. The report of the WLRC Subcommittee on Cooperative they can serve as geographic reference points, which can Arrangements includes adiscussion of the southeast be tied to a network of such points. If different agencies Wisconsin shared land database effort. and organizations are able to relate their geographic reference data to a common network, the network can 12. With an inflation factor of 1.6975 (see note 8), the figure of serve as a geographic or geodetic reference framework. $17 per citizen annually (1976 dollars), from Larsen et al., Land Records (note 7), becomes $29 annually in 1987 23. The report of the WLRC Subcommittee on Geographic dollars. Reference Standards contains specific recommendations for a geographic reference framework for land information 13. Larsen et al., Land Records (note 7). systems in Wisconsin. Wisconsin Land Records Repott 38 Committee:Final 24. The report of the WLRC Subcommittee on Classification & 29. For a brief explanation of land survey monuments, see Standards co ntains specific recommendations for a note 22. statewide land parcel indexing system and data attribute files. 30. The reportof the WLRC Subcommittee on Developing Model RFP's suggests ways local governments could be 25. Tapes and minutes exist for each meeting. In addition, the assisted in preparing requests-for-proposals. Wisconsin Land Information Newsletter (vol.3, nos.1 and 2, and the forthcoming vol.4, no.1) provides a meeting-by 31. For more information on current Coalition activities, meeting chronicle of the Committee through its tenth contact Acting President Christine Reinhard at 143 meeting. Science Hall, 550 North Park Street, Madison, WI 53706- 1404 (608/262-6850). 26. The WLRC Summary Reportwas formally submitted to the former and qurrent Governors of Wisconsin. Copies have 32. The Consortium for the Modernization of Land Records in since been sent to the former and new secretaries of the Wisconsin is the grassroots organization of co ncerned seven state agencies represented on the Committee, and, professionals that helped establish the Wisconsin Land upon request, to hundreds of professionals within and Records Committee. outside Wisconsin. 33. The report of the WLRC Subcommittee on Capitalization & 27. Attendees of the public information meetings received Financing of Data Systems lists other funding copies of the WLHC Summary Report and learned of other possibilities. Committee documents then available, watched a video on land records modernization, and responded to a brief 34. In the 1986 fiscal year, Wisconsin's total real estate presentation on the proposed Wisconsin Land Information transfer tax collections were $17.8 million, based on a tax Program. of 30¢ per $100 value. Therefore, an allocation of $600,000 would be approximately equivalent to 1 ¢ per 28. The report of the WLRC Subcommittee on Institutional $100 value of transferred property. Arrangements is the source of many of the tasks listed. Wisconsin Land Records Committee: Final Repott A-1 APPENDIX A THE WISCONSIN LAND RECORDS COMMITTEE Pictured from left to right are: Back row: Diane Preston, David Carlson, Craig Karr, Rebecca Keipe, Christine Reinhard, Jerry Griswald, James Johnson, Earl Espeseth, George Hall, William Chatterton, Arthur Ziegler, John Schindler, D. David Moyer. Middle Row: Shirley Rasmussen, Arden Sandsnes, Barbara Weisman, Barbara Crosser, Myron Bacon, Carolyn Johnson, Anita Sprenger, Janet Price, Agnes Ring, Meredith Ostrom, John Hohol, Anthony Kiedrowski , Phyllis Fuller, Julie MacSwain. Front Row: Bette Salmon, William Huxhold, Bernard Niemann, James Clapp, James Plourde, Judy Rendall. Not pictured: Fred Arbogast, Kurt Bauer, Arnold Clement, Helen Croteau, Kevin Hagen, Rebecca Keipe, Brenda Kittilson,, Tom Krauskopf, Florence Magnuson, Cliffton Maguire, Suzette Mullooly, Ralph Taylor. Chair: James Clapp William Chatterton Director, Center for Land Information Studies Attorney Professor, Department of Civil & Environmental Engineering Ross and Chatterton /Institute for Environmental Studies Madison University of Wisconsin-Madison Arnold Clement Vice Chair: Bernard Niemann, Jr. Director Editor, Wisconsin Land Information Newsletter Racine County Planning and Development Professor, Department of Landscape Architecture Sturtevant /Institute for Environmental Studies University of Wisconsin-Madison Barbara Crosser Planning Consultant Myron Bacon Barbara Crosser Associates Administrator Plymouth Division of Business Manag ement Wisconsin Department of Transportation Helen Croteau Madison Ashland City Council County Board Supervisor Kurt Bauer Ashland County Executive Director Southeastern Wisconsin Regional Planning Commission Earl Espeseth Waukesha United Real Estate Corporation Madison A-2 Wisconsin Land Records Committee: Final Repolt Phyllis Fuller Meredith Ostrom Vice President, Microcomputers for Everyone State Geologist and Director Owner, Data-Serve Wisconsin Geological and Natural History Survey Lacrosse Madison Kevin Hagen Diane Preston Project Manager Register of Deeds Transportation Division Douglas County Ayres and Associates Engineers Superior Madison Janet Price George Hall Director Local Assistance Planner Bureau of Information Management Land Use Section Wisconsin Department of Natural Resources Wisconsin Department of Development Madison Madison Shiriey Rasmussen WilliamHuxhold Assessor and Zoning Administrator Project Director Town of Rome, Adams County Central Electronic Data Services Department Wisconsin Rapids · City of Milwaukee Judy Rendall Carolyn Johnson County Board Supervisor Alderman Dane County City Plan Commission Mazomanie West Bend Agnes Ring James Johnson Planning Consu ltant Director Cedar Corporation Bureau of Land Resources Menomonie Wisconsin Department of Agriculture, Trade and Consumer Protection Bette Salmon Madison Treasurer Dane County Craig Karr Madison Assistant Administrator Division of Resource Management Arden Sandsnes Wisconsin Department of Natural Resources Registered Land Surveyor Madison Royal Oak Engineering, Inc. Madison Anthony Kiedrowski Kiedrowski Engineering, Inc. Anita Sprenger County Board Supervisor Director Portage County Office of Conservation and Energy Efficiency Wisconsin Rapids Wisconsin Public Service Commission Madison Thomas Krauskopf Federal Relations Coordinator Ralph Taylor Division of State Budget and Planning Director Wisconsin Department of Administration Bureau of Local Financial Assistance Madison Wisconsin Department of Revenue Madison Julie MacSwaln Conservationist Arthur Ziegler Soil Conservation Service State Cartographer U.S. Department of Agriculture University of Wisconsin-Madison Sparta FlorenceMagnuson The Committee gratefully acknowledges the contributions of the Register of Deeds following members, who were unable to continue their participation : Marinette County Rebecca Keipe, Green Lake; Brenda Kittilson, Prescott; and James Marinette Plourde, Madison. Suzette Mullooly Southern Region Manager Wisconsin Power and Light Company Janesville Wisconsin Land Records Com�Htee:.Fin al Report A-3 Federal Liaisons (Ex Officio Members) Esther Gage (Subcommittee on Codes & Statutory Data Requirements) Fred Arbogast George Hall Forest Service (WLRC member) U.S. Department of Agriculture (Subcommittee on Codes & Statutory Data Requirements) Milwaukee CarolynJohnson John Hohol (WLRC member) Bureau of Land Management (Subcommittee on Institutional Arrangements) U.S. Department of the Interior Madi so Nolan Johnson µ Superintendent �Ii� Maguire Outside Plant Records '� Soil Cons� ervation Service Madison Gas & Electric U.S. Department of Agriculture Madison Madison Jane Licht D. David Moyer representing the Wisconsin Counties Ass.ocia tion National Geodetic Survey (Subcommittee on Benefits & Costs) U.S. Department of Commerce Eugene Miller Madison Supervisor of Equalization Bureau of Property Tax Wisconsin Department of Revenue Coordinating Staff Madison Joe Woloschek Chair: James Clapp (Subcommittee on Institutional Arrangements) (see above list of WLRC members) Facilitator: D. David Moyer (see above list of federal liaisons) FORMER Vice Chair, Facilitator: Bernard Niemann, Jr. (see above list of WLRC members) SUBCOMMITTEE MEMBERS Facilitator: Christine Reinhard The subcommittees on which the following individuals served are Assistant State Cartographer grateful to have benefited from their contributions: Program Assistant: Barbara Weisman Gary DeByl, DePere (Benefits & Costs) Thomas Genthe, Platteville TASK FORCE ON (Cooperative Arrangements) LOCAL INSTITUTIONA� ARRANGEMENTS Te rry Golding, Woodruff (Classification & Standards) Chair: David Fodroczl Rebecca Keipe, Green Lake (Subcommittee on Institutional Arrangements) (Developing Model RFP's) Don Barnes Brenda Klttllson,Prescott (Subcommittee on Data Responsibility, Maintenance & Security) (Property Records) Jeff Bluske Edward Kuipers, Madison Real Property Lister (Developing Model RFP's) La Crosse County La Crosse Barbara Larsen, Madison (Institutional Arrangements) Warren Buchner representing the Wis consin To wns Association James Plourde, Madison Town Clerk (Property Records) Town of Windsor John Schroer, Belo�t DeForest (lnteragency &Intergovernmental Data Processing) Arnie Clement John Stellen, West Bend (WLRC member) . (Subcommittee on lnteragency & Intergovernmental Data Processing) (Property Records) Richard DeVriend (Subcommittee. on Benefits & Costs) A-4 Wi8consihLclnd Records Committee: Final Repolt SUBCOMM,ITTE� MEMBERS: Basic· 1ssues 'Group Codes & Statutory Data Requirements John Duffy Appraiser Chair: William Chatterton (WLRC member)' . Hayward Land Title Company Richard DeVriend Hayward Land Use Controls Administrator Mike Llewelyn Eau Claire County Chief, Water Resources Planning and Policy Section Steve Fix Bureau of Water Resources Management Proj ect Leader, Wisconsin Wetlands Inventory Wisconsin Department of Natural Resources Bureau of Water Regulations and Zoning Madison Wisconsin Department of Natural Resources Julie MacSwain (WLRC member) Madison Walter Raushenbush Esther Gage . Professor Register of Deeds Law School Rock County University of Wisconsin-Madison Janesville Mike Robbins George Hall (WLRC member) Assistant Professor Anthony Kiedrowski (WLRC member) School of Business University of Wisconsin-Madison Ole Marlatt President Property Records Northern Title and Abstract Rhinelander Chair: Barbara Crosser (WLRC member) Earl Espeseth (WLRC member) Benefits & Costs Carl Evert Chair: ArtZiegler (WLRC member) . Director John Hagman Office of Lands Wisconsin Department of Natural Resources Chief, Budget and Program Analysis Section · Bureau of Management and Budget · Madison Wisconsin Department of Natural Resources Bonnie Friedrich Madison Contract Specialist Jane Licht Farmland Preservation Program County Board Supervisor Wisconsin Department of Agriculture, Trade and Consumer Protection Dane County Madison McFarland James Ja�ger Gregg Miller Attornei · ··: Wari.yn Engineering Melli, Walker, Pease, and Ruhly Madison Madison Thomas Patterson Lois Ketterhagen Chief of Planning Research Register of Deeds Walworth County Southeastern Wisconsin Regional Planning Commission Waukesha Elkhorn John Nielsen Shirley Rasmussen (WLRC member) County Surveyor Sandy Rowe-Goderstad Racine County Executive Budget and Planning Office Land Surveyor and Engineer Wisconsin Department of Administration Nielsen, Madsen, and Barber Madison Racine Diane Preston (WLRC member) Data Responsibility. Maintenance & Security Gene Rankin Chair: William Huxhold (WLRC member) Director Don Barnes Land Regulations and Records Department Dan� County County Surveyor Madison Rock County Janesville Duane Wunsch Assistant Vice President Helen Croteau (WLRC member) Commonwealth Land Title InsuranceCompany Brookfield Wisconsin Land RecordsCommittee: Final Report A-5 SUBCOMMITIEEME MBERS: In fo rmation IS$Ues Group Classification & Standards Geographic Reference Standards Chair: Myron Bacon {WLRC member) Chair: Kurt Bauer (WLRC member) Nicholas Chrisman Carol Mahnke Assistant Professor Register of Deeds Department of Landscape Architecture/ Dane County Institute for Environmental Studies Madison University of Wisconsin-Madison Meredith Ostrom (WLRC member) Thomas Krauskopf (WLRC member) Donald Rhode Lowell lee Survey Supervisor Tax Assessor Wisconsin Public ServiceCorporation City of Oshkosh Green Bay Allen Miller Mark Riggle Sea Grant Institute Geographic Information Specialist University of Wisconsin-Madison Bureau of Information Management Agnes Ring (WLRC member) Wisconsin Department of Natural Resources Madison Les Van Horn County Surveyor Richard Walker Brown County Professor Green Bay School of Library and Information Studies University of Wisconsin-Madison Dale Zaug Data Administrator William Wambach, Jr. Bureau of Information Management Director Wisconsin Department of Natural Resources District One Office Madison Wisconsin Department of Transportation Madison lnteragency & Intergovernmental Emerging Technologies Data Processing C"Networking"l Chair: Arden Sandsnes (WLRC member) Chair: Arnold Clement {WLRC member) Bruce Baikie Richard Allen Supervisor Interactive Computer Graphics Manager Facilities Marketing Systems Central Electronic Data Services Department Wisconsin Public Service Corporation City of Milwaukee Green Bay Tom Carlsen Phyllis Fuller {WLRCmember) Chief of Special Services Wisconsin Department of Transportation Richard Leaver Madison Survey and Description Supervisor Dodge County William Fleck Juneau Zoning Administrator Land Regulations and Records Department Ron Ripp Dane County CountySurveyor Madison Land Regulations and Records Department Dane County James Johnson (WLRC member) Madison Roger Nacker David Schmidt Director Director Bureau of Business Information Services Planning and Zoning Department Wisconsin Department of Development Winnebago County Madison Oshkosh William Shaw Alan Vonderohe Chief, Applications Support Section Assistant Professor Bureau o"f Information Management Department of Civil and Environmental Engineering Wisconsin Department of Natural Resources University of Wisconsin-Madison Madison Tom Sprague Real Estate Supervisor Wisconsin Power and Light Company Madison A -6 WisconsinLand Records Committee: Final Re polt SUBCOMMITTEE MEMBERS: Management Issues Group Capitalization· & FinanC?ing of Data Systems Cooperative Arrangements Chair: BetteSalmon (WLRC member) Chair: Janet Price (WLRC member) Ronald Gromackl Michael Hasslinger J.C. Zimmerman Engineering Company Register of Deeds Greendale Waukesha County Waukesha Douglas King Physical Planning and Capital Budgeting Roger Laning University of Wisconsin System County Highway Commission Madison Sheboygan County Sheboygan FlorenceMagnuson (WLRC member) David Mezera Mark Middagh Associate Professor Associate Planner Department of Civil and Environmental Engineering Planning Department University of Wisconsin-Madison Marathon County Wausau Suzette Mullooly (WLRC member) Ronald Schaefer Anita Sprenger (WLRC member) Management Information Specialist Wisconsin Department of Transportation Developing Model Requests for Proposals Madison (RFP's) Institutional Arrangements Chair: Kevin Hagen (WLRC member) Chair: Carolyn Johnson (WLRC member) Emmett Harold Assessor & David Fodroczl City of Boscobel I Village of Avoca I Village of· Wauzeka Specialist Richland Center Farmland Preservation Program Wisconsin Department of Agriculture, Trade, MatthewJaniak and Consumer Protection County Surveyor Madison Richland County Richland Center Harvey Jacobs Assistant Professor Paul Skidmore Department of Urban and Regional Planning/ Landscape Architect Institute for Environmental Studies Foth and Van Dyke University of Wisconsin-Madison , Madison Craig Karr (WLRC member) Paul Wolf Professor William Lontz Department of Civil and Environmental Engineering Natural Resources Education Agent University of Wisconsin-Madison University of Wisconsin-Cooperative Extension Hayward/Madison Judy Rendall (WLRC member) Joseph Woloschek JAW Appraisals Corporation Eagle River Wisconsin Land RecordsCommittee: Final Report B-1 APPENDIX B DESCRIPTIONS OF REPORTS BY THE WLRC SUBCOMMITTEES AND TASK FORCE To requesta price list and ordering Informationfor the following reports please write to: Attn: Publications, Center for Land Information Studies, Room 1042 WARF Building, 610 Walnut Street, Madison, Wisconsin 53705. Basic Issues Group Information Issues Group Report No. 1 Report No. 5 Subcommittee on Statutory Data Requirements Subcommitteeon Classification& Standards Wisconsin Statutes Affecting Real Property Records, The Reporlon Land Records Classification and Standards researched by Dean Massey of the University of Wisconsin recommends establishment of a land data file descriptor to Law School, describes over 600 provisions of the Wisconsin facilitate communication and interaction among land Statutes that relate to land information collection, information users. The file descriptor wo uld include several management, and use. These references are grouped and standardized items such as general s·ubject titles, sub-grouped into several land information topics. The mathematically convertible geographic references, and document is indexed according to the state statutes as well as uniform geographic codes for standard political divisions. the land information topics it covers. Report No. 6 Report No. 2 Subcommittee on lnteragency& Intergovernmental Data Subcommittee on Benefits & Costs Processing("Ne tworking") Guidelin es for Benefit-Cost Analysis o( Land Records offers The Final Report of the Subcommittee on lnteragency and guidelines and suggests methods appropriate for conducting IntergovernmentalData Processing features a conceptual various types of benefit-cost analyses of land information model for an interagency/intergovernmental land information systems in Wisconsin. Particularly helpful is the report's . network. It also discusses "networking" needs from the Bibliography of Land Records Cases with Summaries and perspectives of various land information users. Abstracts. Report No. 7 Report No. 3 Subcommittee on Geographic Reference Standards Subcommitteeon Data Responsibility, A Recommended Geometric Framework for Land Data Maintenance Security & Systems describes Wisconsin's current geographic reference Final Reportof the Subcommittee on Data Responsibility, The system and recommends the development of a geometric Maintenance & Security proposes principles for an orderly reference framework with certain accuracy requirements. The transition from the present status of land records management framework would incorporate U.S. Public Land Survey System Multipurpose Land Information Systems, to modern, as well as corners with accompanying geometric coordinates from the a process by which to implement these principles. Seven State Plane Coordinate System. The report also contains categories of land information are listed, each with about 20 rec·ommended procedures for updating land information and sub-categories. resolving the discrepancies likely to be uncovered as land databases develop. Report No. 4 Subcommittee on Property Records ReportNo. 8 In the Final Reporl of the Subcommittee on Property Records Subcommittee on Emerging Technologies the subcommittee recommends that certain essential property Modern Technology for Land Records Information Sys tems records be included in basic land information systems, and identifies problems inherent in existing automated land assigns priorities to other records for inclusion in more information systems, and offers guidelines to local extensive systems. Included are a highly informative matrix of government for procuring automated systems. A significant land records and users showing frequency of use, and a list of portion of the report discusses techniques for data collection, various land records providers in Wisconsin. conversion of data into various formats, and base mapping. Wisconsin Land RecordsCommittee: Final Repott Management Issues Group Ta sk Force Report No.9 Report No. 13 Subcommittee on Capitalization& Financing Task Force on Local Institutional Arrangements of DataSystems Local Institutional Arrangements for Land Information The Final Report of the Subcommittee on Capitalization & Managem·ent in Wisconsin closely examines a variety of Financing of Data Systems is in two parts. The first is a brief important institutional and organizational considerations for paper on funding sources for the proposed Wisconsin Land local governments, small businesses, and small utilities that Information Program. The second part is an updated version of plan to modernize land records. The organizational aspects of "Planning for the Collection of Natural and Physical Resources several notable Wisconsin land records management systems in Wisconsin," a 1981 Department of Administration study to are presented and reviewed in in-depth case studies. Also determine the expenditures of various state agencies to provided is a list of current land records modernization efforts collect resource data. The update is considered a working throughout Wisconsin, as complete and up-to-date as document, as co ntinual updates will be necessary over time. possible, including the names of individuals to contact fo r further information about each effort. ReportNo. 1 O Subcommittee on Institutional Arrangements Institutional Arrangements for Land Information Management Other Materials in Wisconsin presents several alternatives for institutional The following educational and outreach materials were mechanisms by which Wisconsin qan approach land records produced by University of Wisconsin-Madison departments in modernization. The alternatives are reviewed using a cooperation with various federal government agencies. They combination of economic, political, and technical criteria. are noteworthy in their coverage of the need fo r and status of Finally, a single combined alternative is recommended. This land records modernization in Wisconsin. alternative was presented to the Wisconsin Land Records Committee, and helped shape the Committee's . WisconsinLand lnfQnna(ion Newsletter recommendations for a Wisconsin Land Information Program. The Wisconsin Land Information Newsletter, published three to ReportNo. 11 · five times a year, seeks to inform land records users and Subcommittee on Cooperative Arrangements professionals of recent research activities, results, and applications in Wisconsin pertaining to land records The Final Report of the Subcommitteeon Co9perative modernization. The Newsletter's current circulation is Arrangements outlines the results of the.following tasks: approximately 10,000. To receive future issues, send yo ur (1) examine existing cooperative arrangements to determine name and address to the Wisconsin Land Information which are successful, and why; (2) determine the types of Newsletter, c/o Center for Land Information Studies, 1040 cooperative arrangements Wisconsin would benefit from the WARF Building, 61-0Walnut Street, Madison, Wisconsin most; (3) recommend generic.steps toward development of 53705. {There is currently no subscription fee.) cooperative arrangements; and, (4) identify basic assumptions and requirements that should be clarified at the onset of any Land Records!\/lodernization Video cooperative arrangement. Land Records Modernization: Issues, Applications, and ReportNo. 12 Recommendations is a 40-minute instructional video that asks Subcommittee on Developing Model RFP's and answers ten basic questions about land records modernization, such as "Why are land records important?" and The Final Report of the Subcommittee on RFP's offers general "What are some of the benefits of land records guidelines for preparing requests for proposals (RFP's) to modernization?" For more information about the video, procure technological and other products and services for land contact the Center for Land Information Studies, 1042 WARF records management. The guidelines are intended to be of use Building, 61 O Waln ut Street, Madison, Wisconsin 53705 (608/ to local governments in particular. Also available is a separate 262-9937). To rent or purchase copies of the video, contact compendium of actual RFP's from a variety of sources. the University of Wisconsin-Extension Bureau of Audiovisual Instruction, P.O. Box 2093, Mad ison, Wisconsin 53701 (608/ 262-3902), and refer to Video #1 1301 "Land Records Modernization." Wisconsin Land RecordsCommittee: Final Report C- 1 APPENDIX C LOCAL LAND RECORDS IN WISCONSIN The following tables offer an overview of county, municipal, and town land records in Wisconsin. The tables are adopted from the report of the WLRC Task Force on Local Institutional Arrangements (described in Appendix B). There has been an attempt to include any and all local officers and agencies known to have a substantial role in processing land records. Not every local government has all of the officers and agencies listed. TABLE 1 COUNTY LAND RECORDS PROC ESSING PRIMARY LAND PRIVATE SECTOR OFFICER I AGENCY RECORDS FUNCTIONS STATE OVERSIGHT * COUNTERPARTS Abstractor Prepare abstracts of title in None. Attorneys, abstractors, and (Authorized under sec. 59.58; counties with tract index or title companies. duties under sec. 59.58(1)) chain of title system. Assessor Prepare/maintain assess DOR has statutory oversight Appraisers (Kenosha County only) ment roll and assessment for assessor certification (Authorized under sec. 70.99; maps. and operations. duties under secs. 70 .99(6) and related sections of Chapter 70) Clerk Archive for records and Property tax forms from None. (Constitutional Officer; duties maps produced and stored DOR under sec. 70.09(3). under sec. 59.17) by other agencies. Procure and provide property tax forms. Clerkof Circuit Court Maintain records of judge None. Attorneys, abstractors, and (Prescribed under sec. 59.12; ments, tax foreclosures, and title companies. duties under secs. 59.39, liens affecting property. 59.395, and 753.30) Consetvationist Prepare and administer DATCP for Chapter 92 pro� Conservation contractors (Authorized under sec. 92.09 to county animal waste and grams and funding; DNR un and agricultural engineers. administer all conservation erosion control plans and in der secs. 144.25 and programs under Chapter 92) dividual conservation plans. 29.598. Emergency Government Prepare county emergency DHSS under sec. 166.03. None. (Prescribed under sec. government plans and coor 166.03(4); duties under sec. dinate other local plans. 166.03(5)) ForestryAdmi nistrator Prepare and maintain plans DNR under sec. 28.11. Private foresters and timber (Can be authorized by county and records for county fo companies. ordinance under sec. rests. 28.11 (3)(a)) Highway Commissioner Prepare/maintain highway DOT for funding and stan Private engineers and con (Authorized under sec. register of layout, alteration dards. struction firms. 83.01 (1); duties under sec. and discontinuance of all 83.01(7)) highways in unincorporated area of county. C-2 Wisconsin Land Records Committee: Final Repolt TABLE 1 (cont'd) PRIMARY LAND PRIVATE SECTOR OFFICER I AGENCY RECORDS FUNCTIONS STATE OVERSIGHT * COUNTERPARTS Parks Director Maintain records, plans, and DNR for funding and plan� Private recreational f acili (Authorized under sec. maps for county park sys ning standards. ties. 27.015(9) or sec. 27.03(2); tem. duties under secs. 27.015 and 27.05) Planner Prepare and maintain county DATCP, DNR, DOD, and/or Private planning consul- (Authorized under sec. development plan and relat- . DOT depending upon scope tants, developers, realtors, 59.97(2)(d)) ed records and maps. of programs. and related development professionals. Real Property Lister Prepare and maintain lists, Indirectly by DOR through Atto rneys, appraisers, ab- (Authorized under sec. maps, and descriptions of consultation, assessors, stractors, and title compa- 70.09(1); duties under sec. real property tax parcels. and forms. nies. 70.09(2); advisory only) Register In Probate Maintain records of court ac- None. Attorneys, abstractors, and (Prescribed under sec. 851 .71; tions related to wills and title companies. duties under sec. 851 .72) estates. Register of Deeds Recordation of property None. Attorneys, abstractors, and (Constitutional Officer; duties records authorized through- title companies. under sec. 59.51; operations out statutes. under secs. 59.512 to 59.57) Sanitarian Issue and maintain sanitary Certification by DHSS and Plumbers, soil testers, sept- (Authorized under sec. 140.45; permit records. DILHR; administrative rules age haulers, and drillers. duties under sec. 145.20) by DILHR. Surveyor Execute public surveys, Registration by DORL- Private land surveyors, civil (Constitutional Officer; duties maintain public survey EBOAPED & LS and related engineers, atto rneys, and under secs. 59.60, 59.63, records, and manage reloca- administrative code for edu- cartog raphers. 59.635, and 70.52) tion/perpetuation of public cation, experience, and land survey. practice. Treasurer Maintain tax roll and list of Indirectly by DOR through Appraisers, realtors, and (Constitutional Officer; duties delinquent taxes. provision/approval of forms. landowners. under set. 59.20) Zoning Administrator Maintain records and maps Adminsitrative rules by DNR Realtors, developers and (Authorized under secs. for administration of zoning for shoreland/floodplain/ landowners. 59.97(2)(bm) and 59.97(1 O)(b). ordinance. wetland zones; forms and Duties throughout sec. 69.97) procedures from DATCP for exclusive Ag Zoning. * Key to state agency abbreviations: DATCP = Department of Agriculture, Trade, and Consumer Protection DHSS = Department of Health and Social Services DILHR = Department of Industry, Labor, and Human Relations DNR = Department of Natural Resources DOD = Department of Development DOR = Department of Revenue DORL-EBOAPED & LS = Department of Regulation and Licensing, Examining Board of Architects, Professional Engineers, Designers, and Land Surveyors DOT = Department of Transportation Wisconsin Land Records Committee: Final Report C-3 TABLE 2 CITY & VILLAGE LAND RECORDS PROCESSING PRIMARY LAND PRIVATE SECTOR OFFICER I AGENCY RECORDS FUNCTIONS STATE OVERSIGHT * COUNTERPARTS Assesor / Identify and describe ·taxa- Examination, certification, Appraisers. Tax Commissioner ble property and prepare as- manual, and forms by DOR (Prescribed under secs. 61.197, sessment roll from data under Chapter 70. 62.09, 66.01, or 70.06; duties cards. under sec. 61.27 and through- out Chapter 70) Building Inspector Issue and maintain building Subject to administrative Developers, builders, and (Authorized under secs. 61.197, and zoning permits. rules by DILHR and DNA. realtors. 62.09, 66.01, or 70.06; duties under sec. 62.23(9)(a)) Clerk Complete and correct as- Procedures and forms by None. (Prescribed under secs. 61.197, sessment role; prepare tax DOR under Chapter 70. 62.09(1 ); duties under secs. roll and related reports. 61.25, 62.09(1 1 ), and Chapter 70) City Engineer Maintain records of all city Administrative rules and Private engineers, construe- (Prescribed under sec. engineering projects, plats, funding by DOT and DNR for tion companies, and land 62.09(1); may be delegated by sewers, streets, bridges, street and sewer improve- surveyors. city council; duties under sec. buildings, and survey con- ment. 62.14(7)) trol. Housing, Housing and Prepare and implement Funding and administrative Developers, construction Community Develop- housing and redevelopment policy from DOD. companies, and realtors. ment, and Redevelop- plans and projects ment Authorities (Authorization and powers under secs. 66.395, 66.40, 66.431, and 66.4325) Metropolitan Sewerage Adopt and maintain plans Administrative rules and Public utilities. District and standards and manage funding by DNA. (Authorized under secs. 66.20 properties and sewer f acili- to 66.26 and 66.88 to 66.918 for ties. ist class cities; powers under secs. 66.24 and 66.89) MetropolitanTransit Adopt and maintain plans Administrative rules, stan- Railroads, cab companies, Authority and recordsand manage dards and funding by DOT. and public utilities. (Authorized under sec. 66.94, facilities for transportation powers under sec. 66.94(9) - facilities. (22)) Developers, realtors, and at- Planner I City orVillage Prepare and administer Dependent upon nature and (Authorized under sec. records, studies, and maps scope of work program. torneys. · 62.23(1 )(e); powers and func- for master plan and related tions of plan commission under plans. sec. 62.23(1)- (5)) Municipal Public Utilities Adopt and maintain plans Regulated by Public Service Private utility companies. (Authorization and powers under and records for water, light, · Commission. secs. 66.06 - 66.078) heat or power facilities. C-4 WisconsinLand Records Committee: FinalRe polt TABLE 2 (cont'd) PRIMARY LAND PRIVATE SECTOR OFFICER I AGENCY RECORDS FUNCTIONS STATE OVERSIGHT * COUNTERPARTS Treasurer Maintain tax roll as taxes are Procedures and forms by None. (Prescribed under secs. 61.197 collected. DOR under Chapter 70. and 62.09; duties under secs. 61.26, 62.09(9), and 70.73) TABLE 3 TOWN LAND RECORDS PROCESSING Assessor Identify and describe Examination, certification, Appraisers. (Prescribed under sec. 60.30; taxable propertyand prepare manual and forms by DOR duties under Chapter 70) assessment roll from data under Chapter 70. cards. Clerk Complete and correct the Procedures and forms by None. (Prescribed under sec. 60.30; assessment roll; prepare tax DOR under Chapter 70. duties under sec. 60.33 and roll and related reports. Chapter 70) Park Commission Maintain plans, maps, and Possible funding and Commercial recreational (Authorized by town meeting records of town park standards by DNA. facilities. under sec. 60.66; powers and system. duties under sec. 60.66(4)) SanitaryDistrict Maintain plans and records Administrative rules, Private utilities. (Authorized under secs. 60. 71 for water, sewer, and/or solid standards, and possible and 60.72; powers and duties waste facilities. funding by DNA. under sec. 60.77) Treasurer Maintain tax roll as taxes are Procedures and forms by None. (Prescribed under sec. 60.30; collected. DOR under Chapter 70. duties under sec. 60.34) Zoning AdministratorI Maintain zoning maps and Procedures and forms by Developers, realtors, and Building Inspector zoning and building permit DATCP for exclusive Ag attorneys. (Authorized under secs. 60.61 records. Zoning. or 60.62; duties under secs. 60.61 or 62.23) * Key to state agency abbreviations: DATCP = Department of Agriculture, Trade, and Consumer Protection DILHR = Department of Industry, Labor, and Human Relations DNA= Department of Natural Resources DOD = Department of Development DOR = Department of Revenue DOT = Department of Transportation Wisconsin Land Records Committee: Final Report D-·t APPENDIX D LAND RECORDS MODERNIZATION EFFORTS OUTSIDE WISCONSIN Wisconsinis not alone in recognizing the need to At least two states have established programs for statewide modernize land records. That manyof the following land records modernization: initiatives are recent reaffirmsthe urgency of this need. " The North Carolina Land Records Management Program was legislatively established in 1979 and has Fe deral-Level In terest succeeded in coordinating compatible mapping programs " (i.e., on a common geographic reference system) in 64 of The National Science Foundation plans to appropriate the state's 100 counties, as· well as establishing a more than $1 O million over the next six years for a National statewide land parcel indexing system. The program Geographic Information and Analysis Center at a major emphasizes services for local governments in the form of university to be selected by mid-1988. The Center would general guidance for land records management programs, advance theories, methods, and techniques for assistance with development of RFP's, technical training, geographic information systems. and, as available, financial assistance for land records " The National Governor's Association and others modernization projects. addressed the topic of "Piecing the Puzzle Together: • A Virginia Division of Mapping, Surveying, and Land Integrating Data for Decisionmaking" at a May 1987 Information Systems, to be directed by a "State conference in Washington, D.C� Coordinator," was legislatively established in March 1987 In 1986, the Office of Charting and Geodetic Services within Virginia's Department of General Services. The (National Oceanic and Atmospheric Administration, U.S. Division's first-ye�r budget will,be about $105,000, Department of Commerce) was designated as the lead federal increasing to about $400,000 in the second year. North agency for coordinating Multipurpose Lan� Information Carolina Land Records Management Program t">fficials System projects, marking the first time since the mid-19th have offered to assist the Virginia State Coordinator in century that a federal agency has agreed to lead efforts to getting started. coordinate land information. The Office will most likely exercise this authority through the Federal Geodetic Several more states have begun to implement or consider Coordinating Committee, which is already involved in a implementing land information systems, including: number of land records modernization activities. • Arizona; " Massachusetts; • California; • New Mexico; State-Level Efforts Several states have developed geographic information • Colorado; • Ohio; systems that can be applied to resource management and • Georgia; " Oregon; economic development by state and local agencies. These states include: • Hawaii; • Washington. " Illinois: The Illinois Department of Energy and Natural Resources developed a Geographic Information System Local-Level Efforts (GIS) in the early 1980's. The GIS includes a statewide Several excellent local land information systems have been mapping database for broad, general coverage at a implemented outside Wisconsin, including those in: relatively low cost, and contains numerous site- and parameter-specific mapping databases for different areas • Forsyth County, North carolina; of coverage -at various scales. Tabular data can be linked • Lane County, Oregon; to the map files in order to be displayed as attributes on the maps. Illinois' GIS is flexible to allow for as many • Pinnellas County, Florida; and applications as possible. • Wyandotte County, Kansas. " Minnesota: Since1977, Minnesota's Land Management Information Center (developed by the University of As in Wisconsin, most of these local systems were developed Minnesota and located in the State Planning Agency) has primarily by a single agency or organization for specific been providing physical planners, policy planners, and programs. As outstanding as they are, none will be compatible others with geographic coverage of the entire state as well with eventually developed neighboring systems until regional as broad range of land information services and products. or statewide guidelines exist. Decision supportis the Center's priority -- providing information as needed by decision-makers to help articulate the nature of a problem and assist with choices.