TT - Town of Hortonia

Transcription

YOUR PLAN FOR THE FUTURE
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TABLE OF CONTENTS
1.0 Introduction
Where is the town of Hortonia? ....................................................1-1
Settlement History.........................................................................1-2
How Did this Plan Get Started? ....................................................1-2
What is Planning ...........................................................................1-2
Planning is Not…..........................................................................1-3
Why Develop a Plan?....................................................................1-3
How is this Plan Organized?.........................................................1-3
What Do Hortonia Residents Value?............................................1-6
2.0 Issues & Opportunities
Introduction ...................................................................................2-1
Visioning Process..........................................................................2-1
Issues & Opportunities Chapter Vision (Overall Vision).............2-6
3.0 Community Profile
Demographic Profile .....................................................................3-1
Economic Profile...........................................................................3-5
4.0 Housing
Introduction ...................................................................................4-1
Housing Vision .............................................................................4-1
Existing Housing Supply ..............................................................4-1
Senior Housing..............................................................................4-2
Age and Quality of Housing Stock ...............................................4-3
Occupancy.....................................................................................4-4
Cost of Housing ............................................................................4-5
Housing Affordability Analysis....................................................4-6
Opportunities for Housing Choice ................................................4-7
Future Housing..............................................................................4-7
Housing Programs.........................................................................4-13
Coordination with Other Comprehensive Plan Chapters..............4-14
Goals, Objectives and Policies......................................................4-14
5.0 Transportation
Introduction ...................................................................................5-1
Transportation Vision ...................................................................5-1
Inventory of Existing Transportation Facilities ............................5-2
Transportation Network Map & Plan ...........................................5-6
Summary of Existing Transportation Plans ..................................5-7
Network Plan Map ........................................................................5-8
Transportation Issues and Concerns .............................................5-13
Transportation Programs...............................................................5-18
Coordination with Other Required Plan Chapters ........................5-19
6.0 Utilities & Community Facilities
Introduction ...................................................................................6-1
Utilities and Community Facilities Vision ...................................6-1
Utilities Inventory – Location, Use, Capacity ..............................6-2
Community Facilities Inventory ...................................................6-6
Community Services Inventory ....................................................6-14
Utilities and Community Facilities Map.......................................6-17
Utilities and Community Facilities Issues & Opportunities .........6-18
Utilities and Community Facilities Programs...............................6-20
7.0 Agricultural, Natural & Cultural Resources
Introduction ...................................................................................7-1
Agricultural, Natural & Cultural Resources Vision .....................7-1
Agricultural Resources..................................................................7-2
Prime Farmland Map ....................................................................7-4
Lower Wolf River Bottomlands....................................................7-5
Regional Map ................................................................................7-8
Natural Resources and Environmental Concerns .........................7-9
Soils Map ......................................................................................7-17
Building Suitability Map...............................................................7-18
Sanitary Suitability Map ...............................................................7-19
Natural Features Map....................................................................7-20
Cultural & Historical Resources ...................................................7-21
Current Policies & Programs ........................................................7-22
Agricultural, Natural & Cultural Issues & Concerns....................7-26
8.0 Economic Development
Introduction ...................................................................................8-1
Economic Development Vision ....................................................8-1
Labor Force and Economic Base .................................................8-2
Current Business Inventory and business Environments..............8-2
Costs and Benefits of Economic Development ............................8-4
Local Economic Development Desires.........................................8-5
Economic Development Opportunities.........................................8-6
Locations for New Business Developments .................................8-10
Economic Development Tools, Programs, and Partners ..............8-11
Economic Development Issues & Concerns.................................8-13
9.0 Current Land Use
Introduction ...................................................................................9-1
Current Land Use Map..................................................................9-4
Land Use and Development Regulations......................................9-5
Trends in Supply, Demand, and Price of Land.............................9-10
Annexation ....................................................................................9-13
Opportunities for Redevelopment.................................................9-14
A Rural Land Ethic .......................................................................9-14
10.0 Future Land Use
Introduction ...................................................................................10-1
Land Use Vision............................................................................10-1
Background ...................................................................................10-1
Resident Opinions About the Future of Hortonia.........................10-2
Composite Attitude Map...............................................................10-5
Majority Opinion Map ..................................................................10-6
Community Design Considerations ..............................................10-7
How Were the Future Land Use Maps Developed? .....................10-10
How Are the Future Land Use Maps to Be Used? .......................10-11
What’s the Difference Between Zoning and Planning Maps?......10-11
Future Land Use Map Legend ......................................................10-12
How Much Land is Provided for Development............................10-15
Relationship to Other Required Plan Chapters .............................10-16
10-Year Future Land Use Map .....................................................10-17
20-Year Future Land Use Map .....................................................10-18
11.0 Intergovernmental Cooperation
Introduction ...................................................................................11-1
Exiting Intergovernmental Activities and Partners.......................11-2
Intergovernmental Comprehensive Planning Process ..................11-3
Existing and Proposed Plans.........................................................11-4
Infrastructure to Support Town Success .......................................11-5
Relationship to Other Required Plan Chapters .............................11-5
1.0
INTRODUCTION
Where is the Town of Hortonia?
The Town of Hortonia is located in west central Outagamie County, Wisconsin, between Hortonville and
New London. The Wolf River forms the Town’s northern boundary and USH 45 forms much of the
Town’s western boundary. The Town enjoys a blend of family farming operations, undeveloped natural
areas, and rural residential development situated on 19.4 square miles. The township is home to more than
1,000 people.
The Town of Hortonia shares borders with: the Town of Ellington, Town of Greenville, Town of Dale,
New London, Hortonville and Waupaca County.
TOWNS, CITIES & VILLAGES OF OUTAGAMIE COUNTY, WI
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1” = 6 miles
SOURCE: Outagamie County Planning Department – www.co.outagamie.wi.us
STH 15 traverses the Town and provides easy access for residents to New London, Hortonville and the
Fox Cities. The newly completed STH 45 provides access to New London, Oshkosh and areas beyond.
Town of Hortonia Comprehensive Plan – Introduction Chapter
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Settlement History
The Town of Hortonia’s history dates back to 1848 when Alonzo E.
Horton purchased 1,500 acres of land from the Governor of Wisconsin.
The land cost him seventy cents an acre – a steep price at the time. He
was intent on using the land to establish a city site. In 1852, soon after
establishing Hortonville, Alonzo Horton sold his interest in the
community and headed for California to join in the Gold Rush. While in
California, Mr. Horton founded the City of San Diego.
From its humble beginning, the Town of Hortonia has been a farming
community. Today, farming is still important, but faces several
challenges. In more recent decades, residential development has become
more and more pervasive as people seek rural locations with easy access
to the employment opportunities in the Fox Cities.
How Did this Plan Get Started?
Alonzo Horton was born in
Connecticut in 1813. At the
close of the Mexican War,
Horton acquired land warrants
for land in Wisconsin. He lived in
Wisconsin only briefly before
heading further west.
In 2005, the Town of Hortonia decided to initiate the comprehensive planning process. This decision was
made to ensure that the Town will continue to have a say in land uses decisions after 2010, as is stipulated
in the Wisconsin Smart Growth Law (1999 Wisconsin Act 9). Town leaders sought assistance from
OMNNI Associates, a consulting firm based in Appleton, WI. OMNNI’s staff of experienced planners
was selected to facilitate a community-based planning program including visioning, Town strengths and
weakness identification, and the development of GIS-based maps. This community-based planning
approach helped the Town to identify and address important land use, resource protection and
development issues facing the Town of Hortonia.
What is Planning?1
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Planning is an orderly, open approach to determine local needs, goals and priorities, and developing a
guide for action.
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Planning is a concentrated effort by a community to reach a balance between the natural environment
and residential, commercial, industrial and agricultural development.
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A plan is a guide for public officials and private citizens to use in making informed decisions that will
affect their community.
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Planning is a process that helps a community prepare for change rather than react to it.
1
Mike Koles, Comprehensive Planning Fundamentals, UW-Extension, 2000.
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Planning is not…
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An attempt to replace market forces of supply and demand. It helps shape and channel market forces
by establishing certain guidelines to manage development.
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Action. A plan is only a guide for action and implementation.
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An instrument for immediate change. Change will occur incrementally as the plan is implemented.
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Static. Good planning requires continual review of implementation successes and failures, citizen
desires and the surrounding environment so the plan can be adjusted as needed.
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Zoning. A comprehensive plan is a foundation and guide for many tools that may be used to
implement the plan. Zoning is one of these tools. Utilities, capital improvements planning, and
subdivision regulations are examples of other tools.
Why Develop a Plan?
This plan is being made with the general purpose of guiding and
accomplishing coordinated and harmonious development of the Town
which will, in accordance with existing and future needs, promote
public health, safety, morals, order, convenience, prosperity and the
general welfare, as well as efficiency and economy in the process of
development.
Developing this plan sends a clear message that the Town of Hortonia
wishes to act proactively – to set its own ground rules for the types of
development that will benefit the Town, maintain a rural atmosphere
and still provide flexibility for landowners.
How is this Plan Organized?
This 20-year Town of Hortonia Comprehensive Plan includes four
major components:
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A profile of the demographic, economic and housing characteristics
of the Town;
An inventory and assessment of the environment, community
facilities, and natural resources;
Visions, goals, objectives, policies and implementation strategies;
and,
A land use map that depicts the future land use patterns in the
Town.
This plan was developed under the authority of 1999 Wisconsin Act 9,
Wisconsin’s “Smart Growth” Law. The law requires that a 20-year
comprehensive plan be developed and adopted by all units of
DEFINITIONS
Vision: An overall statement related
to the required Smart Growth
chapters expressing the Town’s
expectations for the future. These
statements provide a framework and
context to consider when making
future land use decisions.
Goal: A statement that describes,
usually in general terms, a desired
future condition. Goals will usually
only address one specific aspect of
the vision.
Objective: A statement that
describes a specific action or
condition that is to be attained within
a stated period of time. Objectives
include ordinances changes, new
programs, and other tasks. The
objectives serve as a “to do” list to
implement the plan. To be effective,
objectives must be evaluated
regularly and updated as necessary.
Policy: A course of action, or rule of
conduct, used to achieve the goals
and objectives of the plan. Policies
are based on specific research.
Therefore, they are developed after
vision statements. In some cases, the
policies relate closely to the vision,
but provide more refined, specific
actions.
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government that wish to have a role in land use issues. The law authorizes municipalities to prepare and
adopt comprehensive plans to serve as guides for the development of their communities.
The Town of Hortonia Comprehensive Plan is divided into a series of chapters following the nine (9)
required chapters defined in the Smart Growth Law:
1.
2.
3.
4.
5.
6.
7.
8.
9.
Issues and Opportunities (Chapters 2 & 3)
Housing (Chapter 4)
Transportation (Chapter 5)
Utilities and Community Facilities (Ch. 6)
Agricultural, Natural & Cultural Resources (Ch. 7)
Economic Development (Chapter 8)
Land Use (Chapter 9 and 10)
Intergovernmental Cooperation (Ch. 11)
Implementation (Chapter 12)
In addition, the state requires that these chapters be developed
in concert with Wisconsin’s 14 goals for local planning. These goals are highlighted throughout this plan.
How Were Residents Involved?
The Town of Hortonia Comprehensive Plan was developed in an environment rich with opportunities for
public input. To gain citizen understanding and support throughout the planning process the public was
provided with a variety of meaningful opportunities to become involved in the process. What follows is a
description of the primary opportunities for public input in the planning program. The adopted Public
Participation Plan is provided as an appendix to this plan.
KICK-OFF MEETING – FEBRUARY 22, 2005
At this meeting, the public was informed of future
opportunities to participate in the planning process. In
addition, those in attendance were asked to identify
qualities of Hortonia that they value and to identify
Hortonia’s strength’s, weaknesses, opportunities, and
threats. Results from the Town’s survey were also
presented at this meeting along with some basic 2000 U.S.
Census Data. The meeting was held at the Community Hall
in the Village of Hortonia on February 22, 2005. Post card
invitations were mailed to all residents prior to this
meeting. Approximately 30 people attended the event.
VISION SESSION – MARCH 23, 2005
After the Kick-Off Meeting, the Planning Commission,
business owners, residents and other stakeholders had an
opportunity to develop an overall 2025 vision for the Town
of Hortonia, as well as, individual visions for the required
Smart Growth Chapters. Together, these visions serve as
the mission for planning in Hortonia. They describe desired
future conditions in the Town.
Kick-Off Meeting
February 22, 2005
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INTERGOVERNMENTAL MEETING
At the meeting, invited intergovernmental partners were given the opportunity for mutual
exchange of ideas and recommendations to address any conflicts. This meeting included a
scenario-based exercise to facilitate discussion among participants.
CHAPTER WORKSHOPS
Throughout the planning program, the Planning Commission convened monthly to review draft
text, maps, and other information pertinent to the planning program. Each of these working
meetings was open to the public. At each chapter workshop, participants had the opportunity to
discuss their concerns and ideas about each particular chapter, refine the chapter vision, and
review a preliminary draft of the relevant chapter of the plan. For each meeting, a subsequent
public work session was scheduled for the Planning Commission to finalize the draft chapter.
MAP FORUM
During this event, participants had the opportunity to review and comment on draft maps from the
plan. In addition, OMNNI Associates facilitated a “cognitive mapping” exercise and visual
preference survey during which participants were asked to draw their own future land use maps
of the Town. A more detailed discussion of these activities is provided in the Chapter 10.
MEDIA RELEASES AND WEB SITE
Periodically during the planning process, media releases were provided to area newspapers to
publicize the planning program. In addition, an interactive web site was provided via links from
the OMNNI web site (www.OMNNI.com) in an effort to keep the public informed.
The web page offered meeting schedules, summaries of past meetings, draft maps and plan
chapters, and general education materials about the Smart Growth Law. Throughout the program,
the site was updated at least once a month to ensure that the information was current.
PUBLIC HEARING
At the public hearing, the OMNNI Associates gave a presentation summarizing the planning
effort and recommendations. Following this presentation, the public had an opportunity to testify
about the plan.
COMMUNITY SURVEY
Prior to initiating the planning program, a community-wide survey was distributed to 200
landowners in the Town, of which, 175 were returned. The results of the survey are presented
throughout this plan to highlight resident opinions and interests. A copy of the survey instrument
and results is provided in the appendix.
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What Do Hortonia Residents Value?
During the “kick-off” meeting held in February 2005, participants were asked to identify the values that
influence people to remain, take pride in, and become actively involved in the community. These value
statements provide a direction for implementation of the Town of Hortonia Comprehensive Plan.
Moreover, these values clearly indicate that residents share a strong sense of community identity and
pride closely associated with the rural character and natural areas that make Hortonia a desirable place to
live.
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The peaceful, country, rural setting with a blend of agricultural and residential uses.
Wonderful natural resources and abundant wildlife.
Slow / controlled community growth – large lot sizes.
Low crime rate – Hortonia is a safe community.
Proximity to Fox Cities – jobs, shopping, entertainment and services.
Lots of open, green spaces.
Good schools and teachers.
Little government interference.
Reasonable tax rates compared to nearby communities.
Historic Town Hall.
Friendly, hardworking residents of the Town who are always willing to help.
The Town’s heritage.
Fire department services.
Clean country air.
Sense of community responsibility / land stewardship shared by landowners.
Limestone ledge and other geographical features.
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2.0
ISSUES & OPPORTUNITIES
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Introduction
The Issues and Opportunities Chapter provides the background information on the Town and the overall
visions to guide future development and redevelopment over a 20-year planning period. Specifically, the
Issues and Opportunities Chapter includes population, household and employment forecasts as well as
demographic trends, age distributions, education levels, income levels and employment characteristics
that exist within the local governmental unit. This chapter presents the overall vision for the Town of
Hortonia, including a complete assessment of local strengths, weaknesses, opportunities and threats
(SWOT). The community characteristics and general background information that form the basis for the
Issues & Opportunities Chapter is included in Chapter 3: Community Profile.
Visioning Process
Rather than solely develop a series of policy statements, the
Town participated in an extensive visioning process to establish
a framework from which to make future land use decisions. The
result of this process was a vision statement for each of the nine
required plan chapters. This process was critical to establish a
unified vision for Hortonia and provide a direction and focus for
the planning effort.
What is a Vision?
Webster’s Dictionary, defines a vision as:
(1) sense of sight; (2) something supposedly
seen by other than normal sight; something
perceived in a dream; (3) mental image; (4)
The ability to perceive something not
actually visible, as through mental
acuteness or keen foresight [a project made
possible by one man’s vision].
To identify community issues and opportunities, a four-step
process was utilized, which resulted in the development of
In planning, the term “vision” is an
individual vision statements for each of the nine required Smart
expression or idea of the desired future.
Growth planning chapters. This process included a community
survey, SWOT exercise, cognitive mapping and chapter vision development. What follows is a
description of the activities and the major issues and opportunities identified through the issues and
opportunities process.
Residents review the visions listed at the
March 16, 2005 Vision Meeting and place yellow stickers next to
the 3 most important visions based on their opinion.
Town of Hortonia Comprehensive Plan – Issues & Opportunities Chapter
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COMMUNITY SURVEY
Prior to initiating its comprehensive planning program, the Town conducted a survey of 200 landowners
to understand their desires, concerns and expectations for the future. 175 landowners responded to the
survey. The results provide a collective “resident voice” that was used to guide development of this plan.
Responses to particular survey questions are highlighted throughout the plan and a copy of the complete
results is provided in the appendix.
SWOT EXERCISE
A SWOT is a planning exercise used to get communities thinking about:
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where they have been;
where they are;
where they want to be in the future; and,
how they want to get there.
The objective of the exercise was to find out how residents, business owners, and appointed and elected
officials viewed various aspects of the Town. This could include their feelings on physical things such as
roads, utilities, etc., and “quality of life” issues. At the meeting, each participant was asked to list the
Town’s strengths, weaknesses, opportunities, and threats. Each person could write as many items as
he/she wished under each category. Next, participants divided into small groups to discuss their answers
and decide on the two most important strengths, weaknesses, opportunities, and threats. Prior to
concluding the exercise, each small group shared their answers with all participants. Many of the groups
had identical ideas. The table on the next page summarizes the results. (NOTE: The numbers behind some
answers indicate if more than one group had the same response). However, it was a resident at this
meeting who may have said it best:
Your opportunities will come from paying attention to your weakness.
And your threats will come from missing your opportunities.
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Strengths
Weaknesses
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Town government
Planning for the future
Second and third generations still living in the area
Friendly community
Historic values
Low crime rate – High quality of life
3 acre and 35 acre rule for building on residential and agriculture (2)
Opportunities for community involvement - for interaction on issues
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Lot size / green space (2)
Rural atmosphere – large lot sizes (2)
Low taxes
Clean air
Abundant wildlife
Access to major highways 15 and 45
The fact that the Town has its own Zoning Ordinance
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School districts serving the Town
EMS – Fire services
Our Town hall which is over 100 years, old
Medical facilities
Road conditions
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Lack of Communication
“Good old boy culture” intimidating for younger residents
Intergovernmental cooperation
Fear of change
Annexations (uncontrolled)
Weak Town government (No records, verbal agreements)
Not saying no to people who want to build big houses
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Poor planning for past residential development
Land use harmony between farms and residential areas
Stubborn landowners, bitter about development trying to gain financially
from property without concern for surrounding environment or neighbors
Handful of residents wanting control
Need to implement a plan to increase tax base to remain economically
stable - No commercial development for jobs
Physical shape of the township
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Roads in Town don’t connect. Lots of dead ends
Mowing 3 acres of grass. Where is the wildlife supposed to go?
Fire department
Town hall facilities
Limited utilities (i.e. high-speed internet access)
Resources for handicapped/disabled residents
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Opportunities
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Large tracts for farming need to be maintained
Possible diversity of farming growth
Paying attention to detail of rural living
Keep farming in the area and have less housing
Build on Hortonia’s agricultural base
Development of river and Black Otter Lake
The freedom of space, so when you look out your window you just don’t
see house after house
Will we be able to preserve wildlife and natural resources, i.e. size of
houses, etc?
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People should have input on Town road issues for roads they live on
HWY 15 bypass should be good opportunity to expand business base
Tie into the WIOWASH and other trail networks all around it
Smart business growth and smart residential growth
Commercial growth along HWY 45 & HWY 15
Hortonville industrial park employment
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Opportunity to address balance between agriculture and residential growth.
To be different with lower diversity growth
Encourage & maybe even lower the taxes for people who do not mow their
whole 3 acres. Give an incentive so that deer, owls, fox, etc. can live in a
safe environment.
35-acre housing subdivisions
Lower the 35-acre requirement to 10-15 acres
Chance to be an oasis amid the development
Limit house sizes
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Working with neighboring communities
A park would be nice so people have a place to gather on Sundays with a
pavilion.
Small group – good interactions
Cable/DSL
Involve the 35 to 45 age group in the Town
More proactive Town meetings instead of argument sessions
A new fire hall
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Threats
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To much urbanization; growth from surrounding areas
Become undesirable if we don’t try to grow
All development needs to be done in an orderly fashion or it creates a
threat
35-acre lots
Losing the 3-acre lot minimum
Not upholding the zoning laws and ordinances
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Housing coming and taking over Hortonia
Multi-family growth
The houses are becoming too big. 3000, 4000, and 5000 sq ft homes. No
body needs a home that large; it’s a waste of natural resources
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Ground water issues (3)
Quarry – Reclamation, use Town roads, and accountability
HWY 15 bypass (2)
Annexation (2)
Board members who are selfish and very self centered on their needs
Cost of meeting state mandates with low population
Rising costs of special education students
Slow growth services
Rising school population and need for more schools and taxes to pay for
them.
Cost of schools to meet Greenville’s growth
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COGNITIVE MAPPING
Cognitive mapping was another approach used during the
development of this plan to appreciate local stakeholder issues,
concerns, and desires for Hortonia.
At the Mid-Course Meeting, participants were provided two maps of
the Town of Hortonia. On the first map, the individuals outlined
portions of the Town based on their opinion of aesthetic appeal or
special memories or experiences they have had. The most attractive
places were colored in one shade and not attractive in another color.
Areas with special meaning or memories were circled.
What is a Cognitive Map?
A cognitive map, or mental map, is
a map drawn by a person that
geographically locates his or her
memories, ideas and thoughts of a
particular place. Since cognitive
maps are based on individual’s
preferences and opinions there are
no “right” or “wrong” maps.
Cognitive maps are used to
delineate geographic areas of a
community people like, dislike,
frequently visit, feel are important,
travel through regularly, feel safe,
etc.
On the second map, participants outlined those areas where they
would like to see new commercial/industrial development, new
residential subdivision development, and new recreation areas and open space.
Participants then worked in small groups to discuss their second map. Common areas, agreed by all group
participants, were illustrated on collective group maps. At the conclusion of the meeting, each group
presented these maps to all in attendance.
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These maps were used in the development of the Future Land Use Maps presented later in this plan. This
approach helps to provide residents and other stakeholders the opportunity to more clearly reflect
community concerns and priorities for the future.
CHAPTER VISION EXERCISE
On March 16, 2005 a vision meeting was held. The focus of the meeting was a visioning exercise. The
exercise involved completing a series of statements related to what the Town of Hortonia would look like
in 20 years. The statements related to each of the nine (9) required plan chapters. For example,
participants were asked to complete the following statement, “In 20 years, looking down from an airplane
at the Town of Hortonia, one would see…” OMNNI used the responses to develop draft vision
statements, which the Planning Commission reviewed in the spring of 2005. The final vision statements
are provided throughout this plan to introduce the remaining chapters. The overall vision is provided at
the end of this chapter.
Issues & Opportunities Chapter Vision (Overall Vision)
Below is the overall vision statement, which represents the broad interests of Town residents,
elected/appointed officials, business leaders and property owners. Supporting visions for each of the
required plan chapters are provided at the beginning of subsequent chapters. Supporting goals, objectives
and program initiatives are described in Chapter 12 of this plan.
To preserve our rural farm character, protect our abundant
natural resources, promote sustainable growth and provide a
legacy that will enrich the lives of future generations.
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3.0
How Much Growth Is
Too Much Growth?
COMMUNITY PROFILE
Demographic Profile
The planning process for the Town of Hortonia begins with a
profile of the people who live, work and own property in the
community. Specifically, this chapter examines the size,
composition and trends of the population. This information is
critical to forecasting the need for development and community
facilities and services, since it is people who will demand better
schools, roads, parks, jobs and other public services.
The population of the Town of Hortonia
has grown by nearly 17% since the
1980 census. Its population is expected
to grow to 1,357 persons by 2025.
The primary purpose of this plan is to
provide a vision for the future of
Hortonia and a strategy to effectively
prepare for residential and commercial
development pressures the community
will experience in coming decades.
POPULATION TRENDS & PROJECTIONS
The Town of Hortonia has experienced population gains over the last two decades as demonstrated in
Table 1. However, Hortonia’s growth has been less than that of surrounding towns. The Town of
Hortonia represents less than one percent of the overall county population.
The Town’s growth, like that of the Village of Hortonville, has increased most significantly since 1990.
Should this continue over the next two decades, the Town of Hortonia will experience significantly more
residential and commercial development pressure than it has in the past. This is likely given the new USH
45 corridor and the planned USH 15 bypass around Hortonville that will make the Town even more
accessible to employment, shopping and entertainment centers located in the Fox Cities and beyond.
Some members of the community will view additional residential and economic growth in the community
as necessary and beneficial, while others may see them as threats to the small town character of Hortonia.
Finding a balance between the “preservationists” and “pro-growth” advocates is but one reason for
development of this Comprehensive Plan.
TABLE 1
HISTORIC POPULATION TRENDS
Location
Town of Hortonia
1980
869
1990
883
2000
1,063
2005
Estimate
1,069
Actual Chg
1980-2000
194
% Change
1980-2000
22.3%
Town of Dale
1,620
1,818
2,288
2,529
668
41.2%
1,865
2,099
2,535
2,746
670
35.9%
Town of Greenville
3,310
3,806
6,844
8,130
3,534
107.0%
Town of Liberty
Hortonia’s Share of
County Population
609
702
834
886
225
36.9%
0.67%
0.63%
0.66%
0.63%
NA
NA
2,016
2,029
2,357
2,596
341
16.9%
128,730
140,510
160,971
170,680
41,573
35.0%
Town of Ellington
Village of Hortonville
Outagamie County
SOURCE: WI Dept. Administration, Demographic Service Center for Estimate. 1980, 1990, and 2000 U.S. Census
Town of Hortonia Comprehensive Plan - Community Profile Chapter
3-1
Table 2 projects the population of Hortonia through 2025. Comparisons to surrounding communities are
provided for additional understanding of regional growth. Based on the information provided in Table 2,
the Town population is expected to steadily increase over the next 20 years, but at a rate slower than
nearby communities. Town growth will keep pace with the overall Outagamie County growth rate, so
Hortonia will retain a consistent share of the overall county population.
TABLE 2
POPULATION PROJECTIONS, 2005-2025
Location
2005
2010
2015
2020
2025
# Change,
2005-2025
% Change,
2005-2025
Town of Hortonia
1,123
1,183
1,242
1,302
1,357
234
20.8%
Town of Dale
Town of Ellington
Town of Greenville
Town of Liberty
Outagamie County
Hortonia Share of
County Population
Waupaca County
2,570
2,720
7,884
899
170,939
2,844
2,897
8,901
961
180,260
3,118
3,073
9,915
1,023
189,556
3,393
3,251
10,932
1,086
189,948
3,654
3,416
11,906
1,144
205,577
1,084
696
4,022
245
34,338
42.2%
25.6%
51.0%
27.8%
20.0%
0.66%
0.66%
0.66%
0.69%
0.66%
NA
NA
2,502
52,995
2,639
54,263
2,776
55,297
2,914
56,180
3,041
59,691
539
6,696
21.5%
12.6%
SOURCE: Wisconsin Department of Administration, Demographic Service Center
* NOTE: Per the 2005 Wisconsin Department of Administration Population Estimate, the Town of Hortonia’s 2005 population is 1,069. This
information suggests that the Town is actually growing at a rate slower than these official projections.
POPULATION DENSITY
The Town of Hortonia covers approximately 19.4 square miles. The population per square mile is nearly
67 persons. However, when undevelopable land is factored into the equation, the density of the Town
increases to 96 persons per square mile. As people continue to move into the Town, additional areas will
be developed for residential and commercial uses. It is anticipated that new residential development will
include primarily single-family homes.
POPULATION CHARACTERISTICS
Population figures and growth rates do not provide any insight about the characteristics of the population.
To learn more about the people of the Hortonia, information about the race, sex, and age of the population
must be examined.
In 2000, there were 540 males and 523 females living in the Town of Hortonia. This is nearly a 50-50
split. Most all (98.5%) of the residents reported their race as white in the 2000 U.S. Census. This
information is consistent with the data from the 1990 census.
The median age of a Town of Hortonia resident in 2000 was 37.4. This is slightly higher than the
median age reported for residents of Outagamie County (34.4), the State of Wisconsin (36.0), Village of
Hortonville (33.7), and residents in the surrounding Towns of Ellington (35.0), Greenville (33.8), Dale
(35.7) and Liberty (34.7). This fact suggests that a significant portion of Hortonia’s population is older
than residents of these comparable communities.
3-2
TABLE 3
TOWN OF HORTONIA AGE DISTRIBUTION
Age
Year 1990
Year 2000
Percent Change
Under 5
5-9
10-14
15-19
54
63
77
76
59
92
86
76
9.3%
46%
11.7%
0%
20-24
25-34
35-44
45-54
53
133
134
121
41
120
227
158
-22.6%
-9.8%
69.4%
30.6%
55-64
65-74
75-84
85 and over
79
51
31
11
110
55
27
12
39.2%
7.8%
-12.9%
9.1%
Table 3 looks more closely at the age
distribution of Hortonia residents between 1990
and 2000. The greatest increase was residents
between the ages of 35 and 44, which is also the
age group most likely to be raising children.
Accordingly, there was a significant increase in
the number of school age children over the same
period. What is also interesting to note is the
significant growth in residents over the age of 45
and 55 years of age. Over the next 20 years
these residents will reach retirement age. This
will likely continue to drive up the median age
of a resident of Hortonia. Accordingly,
consideration of the needs of the aging
population is an important aspect of this plan.
SOURCE: 1990 & 2000 U.S. Census
GENERAL HOUSEHOLD TRENDS
A “household” can be described as a group of people living together in a single dwelling unit. This could
include a family, a single person, or a group of unrelated individuals sharing a house or an apartment, but
excluding those persons living in group quarters.
National and state trends have all moved towards an increase in the number of households, along with a
decrease in the average number of persons per household. The main reasons for this decrease in
household size include:
• A decrease in birth rate;
• People waiting longer to get married;
• An increased divorce rate; and,
• An increase in the average life span thereby resulting in more elderly people living either alone or
with another family member.
The Town of Hortonia has not escaped from this trend. The number of persons per household in Hortonia
is decreasing (see Table 4). This is significant since a decreased household size means that more housing
units will be needed to support the population – even if the overall population remains the same.
Specifically, the Town has experienced an increase of 56 households since 1990. However, during this
same period the number of persons per housing unit has decreased. In 1990, there were 3.0 persons per
household in the Town of Hortonia, compared to 2.9 persons per household in 2000. Outagamie County
also experienced an increase in the number of households between 1990 and 2000 and a decrease in the
number of persons per household. Projections done by the Wisconsin Department of Administration show
this trend continuing through 2025.
3-3
TABLE 4
HOUSEHOLD PROJECTIONS, 2005-2025
Location
2000
2005
2010
2015
2020
2025
443
1,124
1,079
3,503
344
74,628
471
1,239
1,157
3,914
370
79,319
494
1,347
1,226
4,301
393
83,397
2.8
2.8
2.8
2.8
3.0
2.5
2.8
2.7
2.8
2.8
2.9
2.4
2.7
2.7
2.8
2.8
2.9
2.5
Total Number of Households
Town of Hortonia
Town of Dale
Town of Ellington
Town of Greenville
Town of Liberty
Outagamie County
362
785
847
2,301
267
60,530
Town of Hortonia
Town of Dale
Town of Ellington
Town of Greenville
Town of Liberty
Outagamie County
2.9
2.9
3.0
3.0
3.1
2.7
387
895
922
2,690
292
65,087
416
1,010
1,002
3,097
318
69,918
Persons Per Household
2.9
2.9
3.0
2.9
3.1
2.6
2.8
2.8
2.9
2.9
3.0
2.6
SOURCE: 2000 U.S. Census and Demographic Service Center, Wisconsin Dept. of Administration
According to the 2000 U.S. Census, there were 362 households (312 owner occupied; 50 renter occupied)
in the Town of Hortonia. The vast majority of households (82.0%) are family households (families). Of
these family households the most common type was married-couple family households (76.2%). Most of
the married couple households did not have children (i.e. empty nesters). There are also a significant
number of non-family households (18%) in the Town that include mostly people living alone.
WHERE ARE RESIDENTS
COMING FROM?
Figure 1.0 provides a breakdown of residency
patterns between 1995 and 2000. Of the
people currently residing in the Town, sixtythree percent live in the same residence they
occupied in 1995. Sixteen percent either
changed residences in Hortonia or moved
from another community in Outagamie
County. The remainder of the population
moved into Hortonia from a different county
or another state.
FIGURE 1.0: Hortonia Residency Patterns
1995 - 2000
6%
Living in Same House
Since 1995
15%
Moved in from a
Different House in
County
Moved in from Different
County
16%
63%
Moved in from Different
State
3-4
Economic Profile
Economic conditions have a direct impact on the supply, demand and costs for housing, infrastructure,
and services within a community. Therefore, it is necessary to examine the economic situation in the
Town to predict additional housing, infrastructure, and service needs. This section profiles the local
economic environment by examining factors, including per capita income, poverty rate, and
unemployment rate.
To understand and appreciate the local economic picture in Hortonia, it is necessary to look beyond the
Town and examine characteristics of Outagamie County. These comparisons provide much more
information about the local economic situation than would a simple look at conditions only in the Town.
Furthermore, these comparisons put economic characteristics into perspective. Given that economy of the
Town depends heavily on the regional economy (i.e. Fox Cities), an understanding of the regional
economy is very important. Strong fluctuations in the regional economy will impact the Town of
Hortonia.
The remaining portion of this chapter is primarily specific to Outagamie County. The information
presented is based on 1990 U.S. Census, 1992 U.S. Economic Census, 1997 U.S. Economic Census, 2000
U.S. Census and other reliable sources. Specific information available for the Town of Hortonia is
incorporated where available and appropriate.
Are You In The Labor Force?
LABOR FORCE
The labor force is the sum of employed and unemployed persons who are
16 years of age and older. Table 5 tracks the rate of employment and
unemployment in Outagamie County over the last several years. The
employment picture for the area reflects the national economic downturn
since 2000.
The labor force is the sum of
employed and unemployed persons
who are 16 years of age and older,
who are willing and actively seeking
work. Institutionalized populations are
not included in the labor force.
TABLE 5
CIVILIAN LABOR FORCE DATA FOR OUTAGAMIE COUNTY
1998
1999
2000
2001
2002
The term used to
describe the relationship
between the labor force
2003
and population is
Labor Force
101,500
99,800
102,105
105,435
106,295
107,368
“participation rate.”
Employed
98,700
97,300
99,393
101,494
100,818
101,766
Outagamie County has a
somewhat higher
Unemployed
2,800
2,490
2,712
3,941
5,477
5,602
participation rate than
the State of Wisconsin
Unemployment
2.8%
2.5%
2.7%
3.7%
5.2%
5.2%
and the United States.
Rate
Outagamie County’s
labor force participation
SOURCE: WI DWD, Local Area Unemployment Statistics Program, 2005
rate is over 80 percent.
The United States’ participation rate is only around 70 percent, while the overall State of Wisconsin
participation rate is approximately 75 percent. Hortonia’s participation rate is 71.5%.
Participation rates are the result of both economic and demographic conditions of an area. Rapid job
growth in Outagamie County has consistently resulted in lower levels of unemployment than those found
in the U.S. or Wisconsin. The high participation rate in Outagamie County indicates that the county has a
diverse mix of employment opportunities and a population willing to work at those industries that are
3-5
located in the county. Hortonia’s lower participation rate reflects the Town’s small percentage of younger
workers (ages 15-24) and high percentage of retired workers (ages 55 and over) as seen in Table 3.
MAJOR EMPLOYERS
Outagamie County workers are very mobile. Almost 45 percent of all employed county residents work
outside of the county. Winnebago County is the destination for two-thirds of outbound commuters. The
majority of those commuting to Winnebago County work in the paper industry in the Neenah/Menasha
area. Nearly 3,000 Outagamie County residents commute to jobs in Brown County. Most of these
workers go to the Green Bay area, and are usually professional, technical and skilled workers. They
commute to jobs in Green Bay’s paper, healthcare and insurance industries.
Table 6 provides a more detailed breakdown of commuting patterns in Outagamie County. The main
commuter route through the county is USH 41. USH 41 is easily accessible to residents of the area via
STH 45 and STH 15. Many area residents who are commuting out of the county are likely traveling to
Brown County. Like most major metropolitan counties, Outagamie County is a net gainer of workers. The
county has a net gain of 8,249 workers coming from other counties.
TABLE 6
OUTAGAMIE COUNTY COMMUTING PATTERNS
County
Winnebago
Brown
Calumet
Waupaca
Fond du Lac
Shawano
Manitowoc
Milwaukee
Sheboygan
Dane
Elsewhere
Commute Into
15,233
5,573
1,611
1,340
215
183
100
84
80
74
654
Commute From
14,300
4,074
6,739
4,612
568
812
281
51
68
62
1,829
Net Gain or Loss
-933
-1,499
5,128
3,272
353
629
181
-33
-12
-12
1,175
SOURCE: WI DWD, Bureau of
Workforce Information.
Wisconsin Commuting Patterns,
2000.
The Town of Hortonia has a minimal amount of commercial and industrial development (refer to Current
Land Use Map in Chapter 9). There is limited non-residential development due to:
•
•
•
Available infrastructure services (i.e. No water and sewer)
A small population base; and,
The Town’s close proximity to nearby cities and villages.
However, the potential for additional Town development exists. The Town would like to maintain its
rural, largely undeveloped character. Accordingly, the Town does not want to see a great deal of
development along these corridors. The Town encourages business development in the Village of
Hortonville and nearby cities.
3-6
According to the 2000 U.S. Census, there were 576 workers in the Town. Most Town residents were
employed in the following types of occupations:
•
•
•
Management, professional and related
(36.0%)
Sales and office (23.7%)
Production, transportation and material
moving (18.6%)
•
•
•
Construction, extraction and maintenance
(11.9%)
Service (9.1%)
Farming, fishing and forestry (0.7%)
By industry, most of the Town’s workers were employed in manufacturing trades (170 persons) in
2000. Of the major remaining industry types reported by residents:
•
•
•
•
•
•
170 residents were employed in manufacturing (29.8% of workforce);
109 residents were working in education, health and social service industries (19.1%);
59 were employed in construction related industries (10.4%);
51 were employed in the retail trade (8.9%);
33 residents were working in finance, insurance and real estate industries (5.8%); and,
19 were employed in agriculture, forestry, fishing, hunting and mining industries (3.3%).
Tables 7 and 8 highlight the top 10 industry groups and employers in Outagamie County. There were a
total of 4,451 employers in the county. The top ten employers employed 15 percent of all non-farm
workers in Outagamie County. Four of the ten largest employers are in manufacturing. However, only
three of the ten largest industry groups are in manufacturing.
Educational services (schools) represent the largest industry employment in Outagamie County. Business
services are the largest private industrial sector in the county. Business services include services such as
personnel services (temporary help agencies), and a host of consulting services in the areas of accounting
and auditing, legal services, engineering, and training services.
TABLE 7
TOP 10 INDUSTRY GROUPS IN OUTAGAMIE COUNTY
Industry Group
Educational Services
Business Services
Paper and Allied Products
Health Services
Eating and Drinking Places
Special Trade Contractors
Food and Kindred Products
Industrial Machinery and Equipment
Wholesale Trade-Durable Goods
General Merchandise Stores
Employers
Employment
30
218
29
218
248
393
26
73
233
17
6,571
5,563
5,744
6,876
5,821
5,657
4,877
4,036
3,508
3,247
SOURCE: Outagamie County Workforce Profile. Employment figures from 2001.
3-7
TABLE 8
TOP 10 EMPLOYERS IN OUTAGAMIE COUNTY
Industry Group
Thedacare Inc.
Appleton Area School District
Thrivent Financial
Appleton Papers, Inc.
Sara Lee Corp.
Fox Valley Technical College
Wal-mart Associates, Inc.
Outagamie County
Miller Electric Mfg. Co.
St. Elizabeth Hospital Inc.
Product or Service
Size
Health Care Services
Education
Direct Life Insurance
Coated Paper Production
Meat Processing
Junior College
Discount Department Store
Executive & Legislative Offices
Welding Machine Manufacture
Health Care Services
1000+
1000+
1000+
1000+
1000+
1000+
1000+
1000+
1000+
1000+
SOURCE: Outagamie County Workforce Profile, January 2004
INCOME & WAGES
Income is another factor that provides an indication of
economic health. Average incomes for Outagamie County
have been consistently higher than state averages as
illustrated in Table 9 (following page), which suggests a
level of prosperity, at least as compared to the state.
Household income includes the income of all people 16
years old and older in the household, whether related or not.
Family income is the summation of the income of the
householder and all members of the family that are 16 years
old or older. Table 10 (following page) provides a snapshot
comparison for Hortonia. These figures show a strong
comparison for the Town.
There are many different breakdowns of income:
MEDIAN INCOME
vs. AVERAGE INCOME
The U.S. Census Bureau data related to
income is reported as a “median” figure. This
represents the middle point of all incomes
reported. It is not the same as an “average”
income. For example, if 4 people reported their
income at $30,000 and 1 person reported their
income at $100,000, the median income for
these 5 people would be $30,000. In the same
scenario, the average income would be
$44,000, which does not accurately depict
where the majority (i.e. 4 people vs. only 1)
reported their income.
The U.S. Census does not provide an average
income figure. Moreover, it is not possible to
calculate an average without access to every
individual census form from Hortonia where an
income was reported. The U.S Census Bureau
privacy policies prohibit this level of access. It is
anticipated that Hortonia’s average income
figures would be higher than the median
income.
•
Per capita income is total income divided by the total
number of residents, including children and other
groups of individuals who do not actually earn income.
•
Median household income is the middle point of
household incomes reported in a community
(households include families, married couple
households and individual households).
•
Median family income is the middle income reported by families in the 2000 U.S. Census.
3-8
TABLE 9
INCOME TRENDS
1980
1990
2000
Outagamie
County
$19,418
$21,838
$7,269
$33,770
$38,286
$13,893
$49,613
$57,464
$21,943
Median Household
Median Family
Per Capita
Median Household
Median Family
Per Capita
Median Household
Median Family
Per Capita
Wisconsin
$17,680
$20,915
$7,243
$29,442
$35,082
$13,276
$43,791
$52,911
$21,271
Percent of State
Income
109.8 %
104.4 %
100.4 %
114.7 %
109.1 %
104.6 %
113.3 %
108.6 %
103.2 %
SOURCE: U.S. Census 1980 - 2000
TABLE 10
HORTONIA 2000 INCOME COMPARISON
Wisconsin
Outagamie Co.
Town of Hortonia
2000 Per
Capita
Income
$21,271
$21,943
$29,573
2000 Median
Household
Income
$43,791
$49,613
$59,904
2000 Median
Family Income
$52,911
$57,464
$66,705
SOURCE: U.S. Department of Commerce,
Bureau of Economic Analysis, Regional Economic
Information System, 2000 U.S. Census, and
Wisconsin Department of Revenue.
Wages paid by employers in Outagamie County are also, on average, higher than the state by industry.
Average annual wages by industry are shown in Table 11.
TABLE 11
AVERAGE ANNUAL WAGE BY INDUSTRY
All Industries*
Agriculture, Forestry & Fishing
Construction
Manufacturing
Trans., Comm. & Utilities
Wholesale Trade
Retail Trade
Finance, Ins. & Real Estate
Services
Government
Outagamie County
$31,707
$23,144
$41,132
$41,291
$36,763
$37,136
$15,748
$42,894
$27,694
$32,959
Wisconsin
$30,922
$22,565
$39,011
$39,739
$36,639
$40,521
$14,596
$40,933
$28,775
$33,785
Percent of State Average
102.5%
102.6%
105.4%
103.9%
100.3%
91.6%
107.9%
104.8%
96.2%
97.6%
* Mining excluded from table since wages were suppressed to maintain confidentiality
SOURCE: Wis. Dept. of Workforce Development, 2002
3-9
Within Outagamie County there are 20 towns. Table 12 compares the relative income position of the
Town of Hortonia to the other towns in the county. Based on 1990 U.S. Census data, the Town of
Hortonia ranked 9th in per capita income compared to the other 19 towns in 1990. By 2000, the Town of
Hortonia rank had improved to 8th.
TABLE 12
OUTAGAMIE COUNTY TOWN INCOME CHARACTERISTICS, 2000
Town Name
1990 Median
Household
Income
1990
Rank
2000 Median
Household Income
Difference
Between
1990 & 2000
2000
Rank
Town of Black Creek
Town of Bovina
Town of Buchanan
Town of Center
Town of Cicero
Town of Dale
Town of Deer Creek
Town of Ellington
Town of Freedom
Town of Grand Chute
Town of Greenville
Town of Hortonia
Town of Kaukauna
Town of Liberty
Town of Maine
Town of Maple Creek
Town of Oneida
Town of Osborn
Town of Seymour
Town of Vandenbroek
All Towns in County
$35,431
$36,298
$41,790
$39,650
$32,794
$35,000
$30,833
$34,890
$37,576
$39,683
$40,608
$36,187
$38,187
$34,531
$29,286
$32,639
$31,316
$35,893
$35,417
$41,875
$35,994
11
8
2
5
16
13
19
14
7
4
3
9
6
15
20
17
18
10
12
1
NA
$53,472
$54,453
$65,410
$58,092
$49,625
$60,152
$44,853
$53,750
$57,868
$50,772
$61,381
$59,904
$61,696
$60,167
$46,058
$43,472
$51,275
$64,375
$48,264
$61,845
$55,344
$18,041
$18,155
$23,620
$18,442
$16,831
$25,152
$14,020
$18,860
$20,292
$11,089
$20,773
$23,717
$23,509
$25,636
$16,772
$10,833
$19,959
$28,482
$12,847
$19,970
$19,350
13
11
1
9
16
7
19
12
10
15
5
8
3
6
18
20
14
2
17
4
NA
SOURCE: 1990 and 2000 U.S. Census
POVERTY STATUS
According to the 2000 U.S. Census:
•
•
•
66 individuals living in Hortonia were living below the poverty line in 2000.
Six of these individuals were age 65 or over and eight were under the age of 18.
There were four families living below the poverty line in the Town of Hortonia in 2000.
In total, 6.4% of the Town’s population was living in poverty in 2000. This figure is significantly higher
than the statistic for Outagamie County - only 4.7% of all county residents were living below the poverty
line in 2000.
Poverty guidelines are a base-level figure. They do not take into account, at the local level, the costs of
housing, transportation, goods and services. Although the poverty level for a family of four in Chicago is
the same as that of a family of four in Hortonia, the cost-of-living differences between the two
communities would indicate a greater ability to “make ends meet” in the rural community.
3-10
EDUCATION ATTAINMENT
TABLE 13
EDUCATIONAL ATTAINMENT FOR POPULATION AGE 25 & OLDER
COMMUNITY
Percent Who Have
Completed High School or
Higher Education
Town of Hortonia
Town of Dale
Town of Ellington
Town of Greenville
Town of Liberty
89.5%
88.5%
87.9%
93.2%
85.2%
Percent Who Have
Completed a
Bachelor’s Degree
or Higher
23.8%
18.4%
7.2%
26.4%
15.1%
Outagamie County
Wisconsin
United States
88.1%
86.9%
85.1%
80.4%
22.5%
16.9%
22.4%
24.4%
A good indicator of the quality
of life in a community is the
educational attainment of its
residents. Generally, a high level
of educational attainment
reflects a skilled population with
higher earnings potential. Table
13 reveals that the Town has a
high level of education
attainment.
SOURCE: U.S. Census Bureau
GENERAL ECONOMIC FORECASTS1
Historically, Outagamie County and the Fox Cities area have had a strong local economy with
employment rates that were higher than the comparable state and national figures. The economy supports
a variety of manufacturing and service industries, including pulp and paper and tourism. Low-interest
mortgage loan rates have also spurred housing construction and commercial development.
Demographic factors are a key driving force in any long-term projection. The growth rate of the
population and changes in its composition have considerable impacts on the labor force, the
unemployment rate, housing demand, and other spending categories. The population projections used in
the U.S. economic forecast are based on the U.S. Census Bureau's "middle" projection for the U.S.
population. This projection is based on specific assumptions about immigration, fertility, and mortality
rates. The national fertility rate (the average number of births per woman upon completion of
childbearing) is expected to rise from its current level of 2.0 to about 2.2 in 2025. Life expectancy for
men and women will rise steadily from 74.1 and 79.8 years in 1999 to 77.6 and 83.6 years in 2025,
respectively. Net immigration (including undocumented immigration) is estimated to fall from 960,000
persons in 1999 to 918,000 in 2025.
The age distribution of the population is also an important part of the long-term outlook. As baby
boomers begin to retire, the share of the U.S. population aged 65 and over will jump from 13% in 2010 to
nearly 19% by 2025, pushing outlays for Social Security, Medicare, and Medicaid higher. In addition, the
growth rate of the working-age population will slow by more than that of the overall population.
Wisconsin total population growth is expected to average 0.4% annually from 2001 to 2025, a rate
slightly below the 0.6% average from 1975-2000. Compared to the U.S. projected growth of 0.8% over
the same period, Wisconsin is expected to continue the long-term trend of slower population growth than
the nation as a whole. The adult population (those over the age of 17) in Wisconsin grew at an average
annual rate of 1% over the past 25 years, but is expected to grow by 0.5% per year from 2001 to 2025.
Also, similar to U.S. demographic trends, the aging population in Wisconsin (those 65 and over) is
1
Much of the information used to develop this section was from the Wisconsin Department of Revenue Long-Term
Economic Forecast, 2001.
3-11
projected to grow at an average annual rate of 2% for the next 25 years, including 3% per year after 2010.
The aging population in Wisconsin grew at an annual rate of 1.3% per year from 1975 to 2000.
A key feature of the population projection that is very problematic for growth of the Wisconsin economy
and the local economy in Outagamie County is the prospect for a decline in the working age population
after 2011. Statewide, the population aged 16 to 64 is projected to grow at an annual rate of 0.6% from
2000 to 2011, but will then decline at an annual rate of 0.4% from 2012 to 2025. The working age
population grew at an annual rate of 0.9% from 1974 to 1999. The growth of the working age population
has a profound effect on the growth of the labor force and employment.
Because of demographic shifts that will play out as baby boomers age and reach retirement, labor-force
growth is expected to slow sharply over the next 20 years. First, increases in female participation will
taper off, if only because the participation rates for many female age groups are approaching those of
males. Also, over time, a growing share of the population will reach retirement age, when the
participation rate falls to about 12%. As a result, the Wisconsin labor force is expected to expand by 1.3%
per year between 2000 and 2005, 0.8% per year from 2005 to 2014, and by only 0.4% per year from 2015
to 2025. Overall labor-force participation is expected to fall as the population progressively moves into
age groups with lower participation rates.
The overall dependency ratio (the ratio of those not in the labor force to those who are) will continue to
decline for most of the next quarter-century, falling from 1.00 in 1989 to 0.91 by 2010, before rising to
1.01 by 2025. This ratio peaked at 1.65 in 1962, just after the crest of the baby boom. Clearly, the
working population will not have to support proportionately more non-workers in the next 25 years than it
has in the past. However, this assessment does not account for workers who support elderly parents and
other retired workers.
There will be a change in the mix of non-workers, however, especially towards 2025. While the share of
the population aged 65 and over has risen dramatically over the last two decades, the ratio of the number
of elderly to the number of workers has so far remained stable. There were 24.4 persons aged 65 and over
for every 100 persons in the labor force in 1971, versus 24.8 in 2000. This ratio should decline to 24.3 by
2006, but then jump to 27.9 in 2014 and to 37.6 by 2025, by which time most baby boomers will be of
retirement age.
In summary, the United States, Wisconsin and Outagamie County are expected to post markedly slower
economic growth over the next 25 years than during the past quarter-century. The prime causal factors for
this slowdown are already in place: labor force growth constrained by demographic forces that cannot be
quickly reversed and relatively moderate growth of the capital stock.
For the Town of Hortonia, these indicators are important because they may impact the quality of life for
residents living in the area. Furthermore, these key economic indicators provide a gauge for the Town’s
ability to support additional commercial and industrial development over the next 20 years.
3-12
REGIONAL EMPLOYMENT FORECASTS
To further consider employment forecasts for Hortonia residents, an effort was made to review the
economic development planning efforts of the East Central Wisconsin Regional Plan Commission
(ECWRPC).
In preparing its regional Smart Growth Comprehensive Plan, the ECWRPC relies on the State of
Wisconsin’s projections of employment for Wisconsin Metropolitan Statistical Areas (MSA’s). The
nearest MSA’s to Hortonia are the Green Bay MSA and the Appleton-Oshkosh-Neenah MSA. Given that
many residents of the Hortonia commute to employers within these MSAs, employment forecasts for
these areas are very relevant to the workforce living in Hortonia.
ECWRPC reports indicate that all MSAs in Wisconsin are expected to see an increase in employment
over the next ten years. Employment forecasts between 2001 and 2006, however, are lower in most MSAs
when compared to growth between 1995 and 2000. The impact of the 2001 economic downturn and the
weaker labor market have lowered future employment growth accordingly. Metropolitan areas that
depend heavily on manufacturing have been more affected by the current economic employment
slowdown. However, while a slowdown has occurred in the Appleton-Neenah-Oshkosh MSA because of
its dominant manufacturing employment, other areas of the state, such as Milwaukee and Racine, have
suffered greater manufacturing employment setbacks. For the time period of 2001 to 2006, it is
anticipated a 5.1% employment growth will occur. The strongest growth is expected in the finance,
insurance, and real estate and services sectors.
CHAMBER EMPLOYMENT FORECASTS
The Green Bay and Fox Cities Chambers of Commerce provide additional employment information for
their respective markets. Again, this information is important to understanding employment forecasts
impacting the Hortonia community, as many residents of the Hortonia commute to these areas to work.
The Green Bay Chamber of Commerce does little actual employment forecasting, but does monitor
historic trends in employment. Over the last five years employment trends have reflected the forecasts
included in the ECWRPC Smart Growth Comprehensive Plan. Unemployment rates in the late 1990s
remained steady at around 2.6%. In 2001, the rate increased to 3.9%. The unemployment rates held steady
in 2002 (5.3%) and 2003 (4.9%) as several large manufacturing employers reduced their local workforce.
However, in the last year unemployment rate decreased to 4.3%. The unemployment rate for the entire
period has been about a half to one full percentage point lower than the state and national averages over
the same period. The Green Bay Chamber, based on comments from its membership, is hopeful that the
unemployment rates will continue to decline back toward the 2.6% level experienced in the late 1990s
within 5 years.
The Fox Cities Chamber of Commerce conducts an annual survey of its members to understand their
staffing changes in the previous year and make predictions for the next. The most recent results from that
survey reveal:
•
In 2004, 51 percent of businesses predicted their staff size would increase during the coming year.
According to the 2005 survey, 43 percent did indeed increase employment during 2004.
•
With respect to the health of the Fox Cities' economy, 56 percent of businesses surveyed rated the
economic vitality as excellent to good while 35 percent believe it to be average. Only 8 percent of this
3-13
year's respondents characterized the economy as below average to poor. In comparison to other U. S.
cities of similar size, 73 percent indicated the Fox Cities as a better place to conduct business.
•
Fifty-three percent of participating businesses predicted staff size to grow during 2005 with another
45 percent anticipating that it would remain the same.
•
The 2005 Economic Outlook Survey suggested a confidence in the Fox Cities' business community
that had not been present for the past few years. In general, survey respondents were optimistic about
the local economy and their own individual businesses ability to grow and prosper. Sales, profits and
employments levels were all expected to increase during the coming year for a significant percentage
of the survey respondents. This is not only true for the retail and service sectors that have experienced
solid growth over the last three years, but manufacturing as well which bore the brunt of the recent
soft economy.
LOCAL EMPLOYMENT FORECAST
Based on available data described in this section, the assessment of community strengths and weaknesses
for attracting economic development (refer to the Economic Development Chapter), and the anticipated
impact associated with the successful implementation of the Smart Growth plan, employment forecasts
for Hortonia residents are for slow but consistent job growth. The recovering manufacturing economy
will bode well for Hortonia given such a large percentage of residents are employed in this particular
sector. Historically the percentage of unemployed Town residents, as compared to Outagamie County as a
whole, has been low. This trend is expected to continue. It must be noted, though, that the share of
Hortonia residents out of the labor force (i.e. retired) will also increase steadily through 2025.
3-14
4.0
Introduction
HOUSING
To learn more about housing, also see
these chapters…
Well-designed, safe, and quality housing choices are vital to
healthy communities. The styles, sizes, and types of housing
• Information related to lot sizes and
choices available give a community character and establish a
subdivisions is provided in the Land Use
connection between residents and their neighborhoods.
Chapter.
Traditionally, most towns have a high percentage of singlefamily homes - often with few other housing choices
• Information about zoning is provided in the
available. This is of concern as the population ages, as other
Land Use Chapter.
types of housing are often needed to meet the needs of all
residents. In developing the 20-year plan for the Town of
• Information about the location and density
Hortonia, the existing housing stock has been reviewed and
of future housing is provided in the Future
recommendations made to meet the Town’s housing needs
Land Use Chapter.
over the next 20 years. This plan includes specific goals and
objectives to ensure that local housing choices exist for all
stages and conditions of life and the vision described below can be achieved.
Housing Vision
In 2025, the Town of Hortonia offers rural residential living choices in harmony with the
Town’s natural landscape; it’s wetlands, woodlands, farms, Black Otter Lake, and the
Wolf River. Single-family homes situated on either 35-acre parcels or within a limited
number of carefully planned subdivisions are the Town’s primary housing choice. A rural
senior housing development has been established within the Town to provide a choice
for residents. Town codes, ordinances, and the Comprehensive Plan promote attractive
housing with abundant green spaces, distant scenic views, trails, and other amenities in
areas identified for residential development.
Existing Housing Supply
In 1990, there were 331 housing units in the Town of Hortonia. Based on the 2000 U.S. Census, this
number grew to 389. This translates to a 17.5% percent increase in the total housing stock in the last
10 years. In contrast, over the same period, the supply of housing in Outagamie County as a whole
increased by 20.6%.
Hortonia has also had far fewer residential subdivisions approved in the last ten years than nearby towns.
Between 1994 and 2004, Hortonia approved 32 lots. During this same period Greenville created 1,290
lots, Grand Chute 638, Dale 224, and Ellington 132.1
The housing supply in the Town consists mostly of single-family homes, but a few other choices are
available. The Town recognizes that single-family homes may not be suitable for or desired by everyone.
Some people are not able to afford a single-family home. Others may not be able to physically handle the
maintenance necessary to keep up a home and yard. Still others may simply prefer living in an alternative
style of housing. Given the rural nature of the Town and limited infrastructure, it is not feasible to provide
1
SOURCE: Outagamie County Growth Report for Approved Residential Subdivisions.
Town of Hortonia Comprehensive Plan - Housing Chapter
4-1
apartments, condominiums, and other higher density housing choices that would traditionally require
water and sewer service. These types of housing options are available nearby in the Village of
Hortonville, City of New London and the Fox Cities. However, it is possible that a senior housing
development (i.e. rural assisted living facility) or perhaps even some townhomes could develop in the
Town. Moreover, single-family housing development that is sensitive to long-term independent living by
residents is also encouraged (i.e. smaller homes, ranch style homes, first floor master, etc.).
13.8 Percent of the Town of Hortonia housing supply is classified as rental-occupied housing (2000
Census). This number is higher than several nearby townships because there are three group homes
located in the Town that impact these percentages. To ensure some variety of housing choices remain
available in the future, the Town will strive to maintain the balance of different housing types shown in
Table 14 (i.e. 10% of the overall housing stock as something other than single-family detached
residential).
TABLE 14
TOWN HOUSING TYPES
Housing Type
(Units in Structure)
Single Family Detached
Duplex
3 or 4 unit
5 to 9 unit
Mobile Homes
# of Units in
Town of Hortonia
346
18
6
11
8
% of Total
Town Housing Stock
88.9%
4.6%
1.5%
2.8%
2.1%
SOURCE: 2000 U.S. Census
Senior Housing
Determining the need for senior housing in a community is not a simple task. Unfortunately, there is no
clear formula or mathematical model available to determine need. This is largely due to the complexity of
the marketplace. The majority of seniors in Wisconsin live in their own homes or in mixed family
congregate housing (i.e. apartments with residents of all age ranges). This is true for seniors living in
Hortonia as well. The ability of a resident to remain at homes is enhanced by organizations and services
that are becoming more common. Examples include: “meals on wheels,” parish nursing programs, home
healthcare, etc. Likewise, building designs for life (i.e. wider doorframes to accommodate future
wheelchair access, first floor bedroom, etc.) approaches can also extend the ability of a resident to live
independently in their own home. However, for a variety of reasons some elderly cannot or will not live
in a private home and will instead need to live in some type of senior housing arrangement.
While there are no senior housing developments in Hortonia, some seniors do live in the three community
based residential facilities (CBRF) located in the Town. These CBRF cater to physically and
developmentally challenged residents. Fortunately, there are a wide variety of living options available in
Outagamie and Waupaca Counties including: independent living condominiums, subsidized and nonsubsidized independent living apartments, assisted living facilities and nursing facilities. The level of care
offered to residents differentiates the facilities. The most intensive care environment is the nursing
facility. The nearest facilities to Hortonia are located in the Village of Hortonville and New London.
In 2000, the Town had a relatively small number of residents over the age of 65. However, a significant
number of residents were over age 45 in the year 2000. These individuals will be over the age of 65
within the 20-year planning period. As a result, it is anticipated that the number of seniors living in the
Town will increase. Accordingly, local demand for senior housing may support the development of a
4-2
retirement community or assisted living facility. Participants at the visioning exercise held March 16,
2005, listed such a facility specifically as a desirable amenity in the Town by the Year 2025.
Until such a facility is built, seniors living in the community must either be able to live independently, or
with limited support from area programs, friends and families. Seniors may also reside with other family
members living in the area.
Age and Quality of Housing Stock
Understanding the relative age of the housing stock in a community is a good indicator of the quality of
the available housing. Table 15 lists the number of units and the corresponding percent of housing stock
by year built. More than half of the Town’s housing has been constructed since 1970 and more than 30%
has been constructed since 1990. A quarter of the Town’s housing was built before 1939 and is more than
65 years old. This information is significant for two reasons. First, it demonstrates that the majority of the
Town’s housing is relatively modern – built with modern building products/technologies and to modern
code requirements. At the same time, a sizeable share of the Town’s housing is older. While this does not
necessarily mean that these older homes are in poor condition, it does indicate that the need for
maintenance is greater than in a community with a newer housing stock.
TABLE 15
AGE OF HOUSING STOCK
Year Structure
Built
# of Units in the
Town
1990 to 2000
1980 to 1989
1970 to 1979
1960 to 1969
1940 to 1959
1939 or Earlier
Total
127
38
55
28
42
99
457
% of Total
Town Housing
Stock
32.7%
9.8%
14.1%
7.2%
10.8%
25.4%
100.0%
It is important to note that the Town of Hortonia has adopted the
Uniform Dwelling Code (UDC) and hired a new Building Inspector.
Enforcement of the UDC by the new Building Inspector will help to
promote quality housing in the Town.
Age alone is not the best measure of housing condition. To be more
accurate, a visual assessment of the housing stock is helpful. Such an
assessment is commonly referred to as a “windshield survey”
because it entails driving or walking through the community and
evaluating each housing unit based on visual appearance. The theory
is that exterior condition generally correlates with interior conditions.
A windshield survey of the Town was conducted in the fall of 2004.
Based on this assessment the following styles of homes were found to
be predominant in the area:
What is the UDC?
The state’s Uniform Dwelling Code
(UDC) for one- and two-family homes
has been enforced statewide as of
January 1, 2005. Previously,
municipalities with 2,500 residents or
less could decide whether to enforce
the UDC. The law requires that
builders or prospective new
homeowners of one- and two-family
dwellings obtain a Wisconsin Uniform
Building Permit before construction
from the municipality, county or statecontracted inspection agency that is
enforcing the code. The complete
code is available from the Wisconsin
Department of Commerce web site
at: www.commerce.state.wi.us.
4-3
•
Rural Subdivisions. There are a few subdivisions located in the Town, the largest of which is the
Falling Wings Subdivision located east of the Village of Hortonville. Subdivision development in
the Town generally consists of a single cul-de-sac with lots platted on either side.
•
Scattered, Rural Residences. These homes are spread
throughout the Town, primarily along Town Roads, where it is
easier to secure a driveway permit (as compared to the state
highway and county trunk highways). Some of these homes
were built for the children of the farmer. Others were
constructed more recently by outside purchasers.
•
Farmhouses. Historic family farm homes are scattered along roads through much of the Town of
Hortonia.
Certainly, there are other types of housing, including mobile homes situated in a small park along Gagg
Lane. However, these types of housing choices are not as dominant on the landscape, nor are they
expected to become a significant housing choice in the future.
Occupancy
For a housing market to operate efficiently, it must possess an adequate supply of available housing units
(units for sale or rent). A housing market's supply of available units must be sufficient to allow for the
formation of new households by the existing population, to allow for in-migration, and to provide
opportunities for households to change their housing because of a change in household size or status.
According to U.S. Department of Housing and Urban Development (HUD), an overall available vacancy
rate of 6.5% (1.5% for the owned portion of a housing stock and 5.0% for the rented portion) is required
to allow for an adequate housing choice among consumers. The overall available vacancy rate for
Wisconsin is 4.75% for rentals and 1.14% for owner occupants (WI Dept. of Commerce, 2000
Consolidated Plan). Vacancy rates vary from one community to
the next. High vacancy rates offer a degree of competition in
terms of price. The available vacancy rate of a housing market
is a good indication of the adequacy of the housing supply,
which in turn helps dictate the cost of housing.
In 2000, the vacancy rate for owner-occupied housing units in
the Town was 0.3% and the rental vacancy rate was 2.0%.
These figures are quite similar to the vacancy rates in 1990. By
comparison, owner-occupied housing unit vacancy rate in
Outagamie County was 0.9% in 2000 and the rental vacancy
rate was 4.9%. With such a low vacancy rate, people moving
into the Town generally need to build a home to
accommodate their desire to relocate.
Falling Wings Subdivision, Town of Hortonia, WI
4-4
Cost of Housing
The available supply, age and condition of the housing stock are the basis for determining the demand for
and cost of housing. The 1990 U.S. Census indicated that the median value of an owner-occupied home in
Outagamie County was $64,400 and the median value in the Town of Hortonia was $70,900 (NOTE:
price does not include land value). Table 16 compares the 2000 median home values for each town within
Outagamie County. The housing value in the Town of Hortonia ranked 4th among the 20 towns in
Outagamie County. Between 1990 and 2000, Hortonia’s median home value more than doubled.
TABLE 16
MEDIAN HOME VALUES IN
OUTAGAMIE COUNTY TOWNS
Town
Town of Hortonia
Town of Black Creek
Town of Bovina
Town of Buchanan
Town of Center
Town of Cicero
Town of Dale
Town of Deer Creek
Town of Ellington
Town of Freedom
Town of Grand Chute
Town of Greenville
Town of Kaukauna
Town of Liberty
Town of Maine
Town of Maple Creek
Town of Oneida
Town of Osborn
Town of Seymour
Town of Vandenbroek
Town Average
2000 Median Home Value
$143,800
$120,500
$125,900
$149,400
$142,900
$95,400
$123,400
$73,900
$132,100
$130,000
$131,900
$143,900
$139,800
$123,300
$92,500
$105,700
$121,100
$150,300
$104,500
$137,700
$124,400
Rank
4
15
11
2
5
18
12
20
8
10
9
3
6
13
19
16
14
1
17
7
NA
Table 17 provides a breakdown of the 2000 Census information pertaining to the value of owner-occupied
housing units in the Town of Hortonia. This table does not reflect units built since 2000. Given the new
development in the Falling Wings Subdivision, the number of units over $200,000 has increased
significantly.
TABLE 17
2000 OWNER-OCCUPIED HOUSING VALUE
Cost Range
Less than $50,000
$50,000 to $99,999
$100,000 to $149,999
$150,000 to $199,999
$200,000 or more
Number of
Town Units
3
53
63
38
63
% of Town
Housing
1.4%
24.1%
28.6%
17.3%
28.7%
SOURCE: 2000 U.S. Census – Based on 220 Town Housing Units Reporting from Long Census Form
4-5
With respect to rental housing, there were 50 renter-occupied housing units in the Town in 2000. The
median monthly contract rent rate in the Town was $535 (based solely on 2000 U.S. Census data). This
rate does not include utilities. This rate is nearly equal to the 2000 median monthly contract rent rate for
Outagamie County ($534), which includes a significant amount of new construction of apartment, duplex
and condominium units in the Fox Cities. Given that many of Hortonia’s rental units are detached singlefamily homes and duplex units, this is a particularly impressive figure demonstrating the affordability of
rental housing (based on its type) in the Town.
Housing Affordability Analysis
Understanding affordability requires more analysis than just looking at the
cost of housing. The greater question is, “does the cost of housing match the
ability of residents to pay for it?”
There are many ways to answer this question. One common technique
comes from the U.S. Department of Housing and Urban Development
(HUD). This method involves comparing income to housing costs.
According to HUD, housing is considered affordable when it costs no more
than 30% of total household income. Per HUD standards, people should
have the choice of having decent and safe housing for no more than 30% of
their household income.
Housing affordability also requires
access to employment and
transportation to allow residents to
sustain a decent wage to afford
mortgage and rent payments.
These issues are discussed more
in the Transportation and
Economic Development Chapters.
In 2000, the median annual household income in the
Town was $59,904, and the median monthly income
was $4,992. Thirty-percent (30%) of the median
monthly income yields $1,336 or less, to be used for
housing costs. The median value of a home in the Town
in 2000 was $143,800 with the median monthly
mortgage payment of $1,306. The median monthly
contract rent rate was $535. These figures, particularly
for single-family homes (the predominant housing type
available) are close to the affordability threshold. That
threshold is probably exceeded once utility costs are
accounted for (i.e. water, gas, electric, phone), not to
mention maintenance expenses and the fact that the
income and housing costs do not reflect taxes.
One strategy to promote affordable housing is to
encourage quality manufactured housing. It is
important to point out that manufactured homes are not
mobile homes. Likewise, it must be clearly stated that
the Town does not encourage mobile home park
development or additional mobile homes on individual
lots.
Manufactured housing is considered a viable affordable
housing choice only if units are compatible in size,
appearance and quality of area stick-built housing. Any
manufactured housing unit must be constructed in
Two photos above are examples of quality affordable
manufactured housing with attached garages, appropriate
roof pitch, front porches, and located on a foundation,
crawl space or basement.
4-6
accordance with local building and zoning restrictions. The manufactured home, once located on a
property, should look like 70 percent of site built housing located within a half mile of it. Other
requirements that should be considered for manufactured housing to ensure it looks similar to site built
homes include: attached garage facilities and placement on a foundation, basement, or crawl space as a
site built home would be required. Manufactured homes may even be two stories.
Manufactured housing is far more affordable than site built housing because homes are built in a factory
increasing economy of scale efficiency, and altogether eliminating delays and costs associated with
weather. These conditions result in significant cost savings. Manufactured housing costs are typically
around $40 a square foot, compared to $90 or $100 per square foot for site built housing.
Another strategy that could be further considered to maintain an affordable housing supply is to actually
limit the size of new housing constructed in the Town (or at least a percentage of new housing). Some
participants suggested this idea during the early planning meetings (refer to the SWOT results in Chapter
2). However, the community as a whole does not strongly support this strategy and adopting it will likely
cause concerns among property rights proponents.
Opportunities for Housing Choice
Opportunities for low-income housing are limited in Hortonia. The existing housing supply consists
primarily of single-family dwellings and a small mobile home development along Gagg Lane. The Town
Zoning Ordinance does include requirements to accommodate mobile home park developments.
Specialty housing can be found in the three group homes catering to physically and developmentally
challenged residents. There are no senior nursing or adult care facilities. Consequently, seniors who reside
in the community must be able to live independently, have assistance available to them, or seek residency
in larger nearby communities that can provide needed services.
The fundamental reason for limited housing choices in the Town is the fact that the community is rural
in nature. The Town’s development consists of low density, single-family residential units. People
interested in living in the Town must purchase at least three acres (and up to 35 acres in exclusive
agricultural areas of land). This expense, added with the cost of drilling a well (approximately $15,000) is
substantial and hampers affordable housing opportunities. The low density of development is not
anticipated to change significantly during the life of this plan given the fact that the Town has no sanitary
district to accommodate more dense development and given resident opinion regarding desirable
development.
Future Housing
Based on the 20-year population projections (provided in the Issues and Opportunities Chapter):
•
•
494 housing units will be needed in the Town in 2025. This means 105 new housing units are needed
over the next 20 years, or roughly 5 new housing units annually.
To maintain Hortonia’s balance of different housing types over the next 20 years, 10-11 of these new
housing units should be something other than single-family houses.2
2
In urbanized areas (i.e. cities and villages), one-quarter to one-third of a community’s housing supply is
recommended, from a planning perspective, to be available as alternative housing to ensure diversity and
4-7
•
•
A number of units could also be provided within a senior housing development. Such a facility
should be located in areas with easy access to either USH 45 or STH 15. This is not to say it needs to
be located directly on these roads, but simply near a highway to provide easy emergency access.
Residents desire housing be established through planned subdivisions, lot splits, and other rural land
divisions.
Housing Issues and Concerns
In May of 2005, the Town hosted a meeting to discuss housing. During the discussion, participants were
asked to identify local housing issues and concerns. The primary issue discussed was trying to find ways
to accommodate development without adversely impacting natural resources and rural character. Since
the beginning of the planning process, residents were passionate about the need to provide landowners
with the opportunity to develop their land, but also to ensure that development doesn’t dramatically
change the character of the community.
The reality is that significant amounts of new development will change the character of Hortonia.
Concern about increased growth and its impact on the rural character of the Town was an important
reason for developing this plan. Residents refer to the staggering amount of development that has
occurred in Greenville over the last 15 years as an example of what they do not want to see happen to
Hortonia. Many residents expressed their support for the 35-acre minimum zoning lot size requirements
in the Town. To keep Hortonia rural several strategies can be considered, including:
•
•
•
•
Retaining farmland and open/undeveloped lands (discussed more
in the Agricultural, Natural & Cultural Resources Chapter)
Limit subdivision development and consider new designs for
subdivisions (i.e. conservation subdivisions)
Be more sensitive about home location on new lots
More restrictive zoning requirements (discussed further in the
Land Use Chapters)
HOW IS A CONSERVATION/CLUSTER
SUBDIVISION CREATED?
1.
Develop a Yield Plan. This plan
essentially shows how many homes
could be developed if a traditional
subdivision layout were used.
2.
Identify Primary And Secondary
Conservation
Areas.
Primary
conservation areas include: poor soils,
steep slope, wetlands, waterways and
floodplains that are not conducive to
development. Secondary conservation
areas include other areas of local
importance targeted for protection (i.e.
farmland, woodlands, scenic views,
etc.).
3.
Locate the Home Sites.
4.
Include Roads, Sidewalks and Trails.
5.
Draw the Lot Lines.
CONSERVATION SUBDIVISION DESIGNS
During the planning program, residents clearly expressed a desire to
preserve the unique landscape and natural assets that make Hortonia a
special place to live. They do not want to see these features lost to
accommodate development. Therefore, new housing development
should be done in harmony with the natural environment. One way to
achieve the desired balance is with conservation subdivisions.
Conservation subdivisions provide developers with a marketable
alternative to conventional subdivision design, allowing communities
to accommodate new development while preserving natural resources.
affordability in a community. These percentages are not realistic in rural towns like Hortonia, which lack the
necessary infrastructure to support alternative housing. In 2000, approximately ten percent (10%) of Hortonia’s
housing was classified as something other than a single-family home (i.e. duplex, townhomes, mobile home, etc.). If
Hortonia is to maintain this balance over the next 20 years, of the 105 new housing units expected, 10-11 would
need to be something other than single-family houses.
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Conservation subdivision design encourages the preservation and protection of open space, natural areas
and farmland resources. In a conservation subdivision, homes are “clustered” together on smaller lots so
that a greater proportion of the land is protected from development.
•
•
•
•
•
Typically, a conservation subdivision will require at least 50% of a site be protected from further
development. This 50% is sometimes in addition to those areas that are undevelopable (i.e. wetlands,
floodplains, severe slopes).
Protection and maintenance of the conserved area can be accomplished through a conservation
easement with an appropriate conservation organization, land trust, homeowners association or
government body, or through covenants.
The areas to be conserved must be protected forever.
The land designated for protection should either be left as natural wildlife habitat, open space, or
farmland.
In conservation subdivisions, the development of walking and bicycle trails is also encouraged,
particularly to provide limited access to protected natural areas.
4-9
Conservation/cluster subdivisions are a tool to balance the growth desires of landowners and retiring
farmers with the rural character preservation desires of other residents. The cost benefits associated
with conservation/cluster subdivisions make these types of development more desirable for landowners
and developers. Cost benefits include:
•
Reduced construction costs compared to traditional subdivisions because a reduced area needs to be
graded, fewer roads need to be constructed, and lesser runs of other infrastructure (gas, electric, etc.)
need to be installed.
•
Residents of conservation-based developments are willing to pay more for their lots than landowners
in traditional subdivisions given the open space amenities and security in the fact that no new homes
will be built in their backyard.
There are two ways to develop conservation-based subdivisions. The figure provided in this section
illustrates the differences between the two approaches. If the landowner agrees to common open space, a
conservation easement is established. A conservation easement is a restriction against further
development on a portion of a parcel. Conservation easements can be used to protect floodplains, areas of
steep slope, woodlands, and scenic views beyond the home sites in the development. In this approach,
individual lot sizes are reduced and surrounding land is held in common ownership -- usually maintained
by a homeowners association. The overall density of development remains the same (i.e. no more homes
are permitted than in a traditional subdivision development).
In some situations, it is not feasible to reduce the lot size to develop a conservation/cluster subdivision. In
these situations, lot lines can be extended so that there is no common open space, but rather private open
space. Areas beyond the home sites can then be deed-restricted against further development, keeping the
property open without creating a “common” open space.
SOURCE: Fred Heyer, Preserving Rural Character, American Planning Association PAS Report No. 429.
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HOUSE LOCATIONS ON LOTS
The location of a home on a parcel can have a significant impact on the rural character of the area
surrounding it. Being sensitive to the location of a home on a parcel is another way of helping to
minimize the impact of new development on the natural environment and rural setting. Some specific
siting suggestions are listed below. If desired by the Town, these suggestions could be incorporated into
the Town’s Zoning or Subdivision Ordinance as requirements.
To minimize the visual impact of development to maintain rural, undeveloped character and feeling:
•
•
•
•
When possible, new homes should not be placed in the
middle of open farm fields.
Residences should be located adjacent to tree lines and
wooded field edges, if available. If not, homes should
be clustered on the edges of farm fields.
Where clustering of homes will yield open space that
can remain actively farmed or protect vital wildlife
habitat, its use should be explored.
Discourage development (i.e. homes, water towers,
cellular towers, etc.) on hilltops because it can disrupt
scenic, open, rural vistas.
To retain rural features to protect rural character:
•
•
Existing farm roads should be incorporated into
subdivision designs.
Stone rows and tree lines should be preserved.
New home located on in the middle of a former
farm field on the crest of hill off CTH TT in
Hortonia.
To minimize the disturbance to the natural environment when new development occurs:
•
•
•
•
Roads should be constructed to follow contours.
Roads should wind around stands of trees and large individual trees (care should be taken to avoid
driving within the “drip line” of trees during construction).
Disturbance for the construction of roads, basins and other improvements should be kept at a
minimum.
Disturbance on individual lots (i.e. lawn area) should be limited.
4-11
QUESTIONABLE
SOURCE: The Hidden Design in Land Use Ordinances: Assessing the Visual Impact of Dimensions Used for Town
Planning in Maine Landscapes. A publication of the MAC/University of Southern Maine Design Arts Project. Edited by
Paula M. Craighead. March, 1991.
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Housing Programs
A number of federal and state housing programs are available to help the Town promote the
development of housing for individuals with lower incomes, senior housing, and housing for people with
special needs.
FEDERAL PROGRAMS AND REVENUE SOURCES
HUD is the federal agency primarily responsible for housing programs and community development.
Though many of its programs are directed to larger cities and urban areas, the Town and Village do
qualify for some available funds. Specifically, HUD provides money to non-entitlement (i.e. communities
with populations less than 50,000) communities through grants. In the State of Wisconsin, the Division of
Housing and Intergovernmental Relations (DHIR) within the Department of Administration is responsible
for the distribution of these federal funds. It awards these funds through a competitive proposal process.
The United States Department of Agriculture-Rural Development (USDA-RD) provides a variety of
housing and community development programs for rural areas. Its programs are generally available to
communities with populations of 10,000 or less. It provides support for rental housing development,
direct and guaranteed mortgage loans for homebuyers, and support for self-help and cooperative housing
development. These funds may prove helpful in the development of a senior housing facility.
STATE PROGRAMS AND REVENUE SOURCES
Beyond the funds distributed through HUD, the DHIR administers several state funded programs that can
potentially be used to finance housing improvements. Money available through the DHIR, because it is
funded by general-purpose revenue, cannot be used to invest directly in housing development. However,
funds can achieve the desired result by helping organizations develop the capacity to develop houses or
by providing various types of financial assistance to homebuyers or renters through grants to local
governments or non-profit agencies.
The Wisconsin Housing and Economic Development Authority (WHEDA) is a quasi-governmental
agency that finances housing development through the sale of bonds. Unlike the DHIR, it receives no
direct state-tax support. Therefore, WHEDA can provide mortgage financing for first-time homebuyers
and financing for multifamily housing as well. Specific programs evolve and change with the needs of the
housing market.
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Coordination with Other Comprehensive Plan Chapters
Housing is the primary developed land use in the Town of Hortonia. As such, it directly affects most
other chapters of this comprehensive plan. Land Use, Utilities and Community Facilities, Transportation,
Economic Development and Agricultural, Natural, and Cultural Resources are all directly affected by
housing. That being said, it is important that the chapters are consistent and support one another.
LAND USE CHAPTER
Land use dictates the amount of land available for housing, its location, type, and density. The Future
Land Use Maps identify areas for residential use over the next 20 years in accordance with desired
density restrictions.
UTILITIES AND COMMUNITY FACILITIES
Improvements such as roads, parks, trails and schools all need to be coordinated with housing decisions
and vice versa. The best method to coordinate improvements is to follow the land use pattern presented on
the Future Land Use Maps as closely as possible and plan for future improvements in a Capital
Improvements Plan as recommended in the Utilities and Community Facilities Chapter. This approach
will greatly enhance the efficiency of capital improvements and services.
TRANSPORTATION
The location of housing affects commuting patterns and transportation costs. The inverse is also true - the
location and density of housing affects transportation needs. The location of housing influences on which
roads people drive or whether they need to drive at all. These factors were carefully considered in the
Transportation Chapter to ensure compatibility with projected residential development.
ECONOMIC DEVELOPMENT
Housing needs must be linked to a community’s economic situation. Specifically, it is important to ensure
that the local housing supply is affordable to residents. For this reason, an affordability analysis is
presented in this chapter. Moreover, given that housing is the primary developed land use in the
community, quality local housing directly impacts the Town’s ability to finance needed improvements to
support the local economy through receipt of property taxes.
AGRICULTURAL, NATURAL AND CULTURAL RESOURCES
The desire to preserve agricultural and natural areas competes with the desire of others to build additional
housing. These competing interests are balanced through the land suitability analysis information
presented in the Agricultural, Natural and Cultural Resources Chapter. This information helps to ensure
that housing is located in areas that will have the least impact possible on existing farming areas and
important natural resources, while still supporting additional residential development needs.
Goals, Objectives and Policies
Housing goals, policies and objectives can be found in the Implementation Chapter (12).
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5.0
TRANSPORTATION
Introduction
This chapter provides information about existing transportation facilities and plans in the Town of
Hortonia.
VISION & SWOT EXERCISES
During the SWOT exercise
conducted as part of the KickOff Meeting held on February
22, 2005, access to major
highways 15 and 45 was
identified as a strength of the
Town. The number of dead end
roads (i.e. lack of connection
between roads) was identified as
Portion of the Wall Graphic created March 16, 2005 at the
Hortonia Vision Meeting. Residents identified walking trails, bike routes,
a transportation weakness by
snowmobile trails and equestrian trails as part of their vision for 2025.
some participants. The primary
transportation opportunity
identified by residents at the Kick-Off Meeting was to tie into the WIOUWASH Trail and other trail
networks around it. The improvements to STH 15 were considered a threat by some residents.
The vision statement below provides a description of the desired transportation features in 2025. Many of
the concepts defined in this vision relate directly to the ideas expressed by residents at the Kick-Off
Meeting and the follow-up Vision Meeting.
Transportation Vision
A well-maintained system of Town and County roads and State highways meet
the transportation needs of Hortonia residents in 2025. Residents enjoy easy
access to Hortonville, New London and the Fox Cities via STH 15 and USH 45.
More residents than ever before take advantage of organized transit choices (i.e.
car pooling) to cost-effectively travel to nearby employment centers and
entertainment venues.
By 2025, trails and walkways have become an integral part of the recreation and
transportation network - providing connections between subdivisions,
neighboring communities, and the greater region. Although personal vehicles
remain the primary choice for transportation, walkers, bicyclists and other
outdoor enthusiasts enjoy trails linking Hortonia with surrounding areas. Beyond
trails, Town residents also enjoy quiet walks on subdivisions streets and cycling
on designated routes through the Town.
Town of Hortonia Comprehensive Plan - Transportation Chapter
5-1
Inventory of Existing Transportation Facilities
Transportation facilities in Hortonia range from rural roads to State highways. Residents enjoy easy
access to STH 15 and USH 45. Residents rely mainly on their personal vehicles to meet their
transportation needs. Other modes of transit, including light rail and air transportation, are not available,
nor are they likely to be developed in the Town in the next 20 years.
WALKING & CYCLING OPPORTUNITIES
Currently, the safest areas for
walking in the Town are within
subdivisions. Town and County
roads have limited shoulder areas
and posted speed limits of 45 miles
per hour or more in most areas.
These conditions hinder safe
pedestrian travel. Moreover, short
site distances in some areas also
present a danger to pedestrians.
Walking to places of work,
shopping or entertainment is not
realistic for most residents, given
that nearly all goods and services
are located several miles away (in
nearby communities). This
situation is not anticipated to
change over the next 20 years. As a
result, Town residents without
access to vehicles will continue to
face transportation challenges.
Trails. At this time, a short
segment of the WIOUWASH
State Trail connects from the
southeast corner of Hortonia into
the Village of Hortonville. This
County-operated trail, named for
Winnebago, Outagamie, Waupaca,
and Shawano counties, extends
from downtown Oshkosh 22 miles
to Hortonville, and also from
Tigerton 16 miles to Birnamwood.
In addition to the WIOUWASH
Trail, north of the Town of
Hortonia a trail corridor extends
between New London and Oneida
along an abandoned railroad
corridor.
5-2
Bicycle Routes/Corridors. Currently, there are no official bicycle routes through Hortonia, but the
potential for several routes does exist.
The Wisconsin Department of Transportation (WisDOT) has completed a statewide bicycling conditions
assessment to identify key bicycle linkages in each county. The assessment suggests, but does not
officially establish bicycle routes. Potential bicycle routes identified along State highways are planned
and maintained by WisDOT. The bicycle conditions assessment completed by WisDOT evaluated
potential bicycle linkages based on:
•
•
•
•
Road width (i.e. ability to accommodate a shoulder path);
Traffic volume;
Truck traffic as a percentage of all traffic (secondary consideration); and,
Site distance restrictions (secondary restriction).
WisDOT limited the scope of its assessment to County and State corridors. WisDOT generally considers
Town roads acceptable for bicycling given their limited traffic flows. In the Town of Hortonia, WisDOT
identified CTH T and CTH TT as having the best conditions for cycling routes. It is also important to
note here that the STH 15 project (discussed later in this chapter) presents an additional opportunity for
trail development in the Town with assistance provided by WisDOT.
WisDOT suggestions for bicycle routes are not firm recommendations. They are simply suggestions.
Where appropriate, recommendations from this assessment are included on the Transportation Network
Map and Plan presented in this chapter.
The Outagamie County Greenway Plan has additional recommendations for bicycle and pedestrian
trails in the county along CTH M, the Wisconsin Central Limited Rail Corridor and the Wolf
River. More information about the Outagamie County Greenway Plan is included later in this chapter.
SNOWMOBILE TRAILS
Though a seasonal transportation choice primarily used for recreational purposes, residents of Hortonia
have access to snowmobile trails. The Hortonville Polar Bear Riders are the nearest club to the Town that
work to establish and maintain trails throughout the area.
RAILROAD CORRIDORS
A Wisconsin Central Limited Railroad1 corridor runs across the Town of Hortonia. This railroad corridor
connects the Fox Cities to New London. There are no plans to establish new rail corridors in Hortonia or
abandon this route.
MASS TRANSIT
Mass transit via bus, high-speed rail, or other means is not available in the Town of Hortonia. It is also
not likely to be established in the next 20 years given the relatively low density of development in the
Town. Simply put, the density of development in the Town cannot provide the ridership needed to
support a transit system. The Town has no plans to establish any passenger rail transit service.
Transit-dependent residents of the Town must rely on the assistance of friends or family, or hire private
transportation providers to meet their transportation needs. This situation is of some concern given the
increasing numbers of elderly residents living in the Town. Information about available transportation
1
Canadian National is the parent company of Wisconsin Central Limited Railroad.
5-3
choices (also included transportation providing through faith-based organizations, such as organized
rides) could be made available to seniors via a Town newsletter and/or Town web site.
WATER TRANSPORTATION
The Wolf River is the primary water feature in Hortonia. It is classified by the Wisconsin Department of
Natural Resources (DNR) as “navigable stream” and offers residents recreational boating opportunities.
Additional information about this river is provided in the Agricultural, Natural and Cultural Resources
chapter of this plan. The nearest port facilities to the Town of Hortonia are located in the City of Green
Bay.
AIRPORTS
There are no airports in the Town of Hortonia. The nearest airport to the Town of
Hortonia is the Outagamie County Regional Airport. Outagamie County
Regional Airport is located three miles west of the City of Appleton in the Town of
Greenville. The airport includes two runways and offers fuel, charters, maintenance
services, avionics services, aircraft sales/leasing/brokerage, hangar space rental,
catering, pilot supply sales, courtesy transportation, parking and a flight
school/flight training facility.
According to the WisDOT State Airport System Plan for 2020, Outagamie County Regional Airport will
continue to provide air carrier and air cargo service through 2020 and beyond. The airport will remain an
important component of the state’s air passenger system.
TRUCK TRANSPORTATION
STH 15 and USH 45 are the primary trucking routes
through Hortonia. WisDOT has officially designated these
corridors as truck routes. This designation is based on the
design of the roadway to withstand truck weight and traffic.
CLASS B HIGHWAYS
May include County and Town roads, or
portions thereof, on which no person,
without a permit, shall operate any
vehicle or combination of vehicle and
imposing wheel, axle, group of axels, or
gross weight exceeding 60% of the
listed capacity weight of the roadway.
For additional information, refer to
Wisconsin Statutes, Chapter 348.
The Wisconsin
Statutes define
standards for
the length,
width and weight of trucks allowed on certain roadways
to prevent road degradation and untimely maintenance.
Hortonia has the option of designating roadways as
“Class B Highways” (see definition in box above). This
can be done by ordinance. At this time, there are some
Class B Highways in the Town.
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STREETS AND HIGHWAYS
Streets and highways are classified according to their
primary function, either to move vehicles or to serve
adjacent land. For example, arterials accommodate
the movement of vehicles, while local roads are
designed to provide direct access to individual parcels
of land. Collectors serve both local and through
traffic by providing a connection between arterials
and local roads.
Facilities classified under the Federal Aids Secondary
System (county trunks and state highways) qualify
for federal aid for capital projects involving
construction, reconstruction or repair. State highway
aids are available to communities for construction
and maintenance. Federal aids cannot exceed 85% of
expenditures based on a 3-year average.
State Highway 15 is an important corridor through Hortonia.
Principal Arterials. STH 15 and USH 45 are classified as principal
arterials in Hortonia. These corridors were identified by participants
at the Kick-Off Meetings held in February 2005 as important assets to
the Town of Hortonia.
Minor Arterials. There are no minor arterials in Hortonia.
Major Collectors. County Highway M is considered a major
collector in the Town of Hortonia.
Minor Collectors. There are no minor collectors in Hortonia. Beckert
Road has the potential to be established as a minor collector. In
Waupaca County, this road is already classified as a minor collector.
Local Roads. The remaining roads in the Town are local, low-use
roads. They provide access to farm, residential and business uses
within the Town. Among the roads classified as Local Roads are two
private roads: Gagg Lane and Franks Lane. These private roads are
maintained by those persons who own land adjacent to these roads.
All the roads described in this section are illustrated on the
Transportation Network Map and Plan provided in this chapter.
Available traffic count information at key intersections is also
provided on the map.
WHAT’S THE DIFFERENCE?
Streets and highways are classified
according to their primary function,
either to move vehicles or to serve
adjacent land.
9 Principal Arterials – serve
interstate and interregional
trips.
9 Minor Arterials –
accommodate inter-regional
and inter-area traffic
movements, often in
conjunction with principal
arterials.
9 Major Collectors – provide
service to moderate sized
communities and other intraarea traffic generators. Many
county trunk highways fall into
this classification.
9 Minor Collectors – these
roads collect traffic from local
roads and provide links to all
remaining portions of smaller
communities and other higher
function roads.
9 Local Roads – provide direct
access to residential,
commercial and industrial
development.
The Town values the road network given its central role in meeting
the transportation needs of Town residents. Therefore, the Town
considers road maintenance an important priority. To that end, the
Town completed a Capital Improvements Plan in 2000, which it has used to identify annual road
improvements through 2005.
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5-6
Summary of Existing Transportation Plans
This summary is provided to understand how existing plans relate to the Town of Hortonia.
FEDERAL TRANSPORTATION PLANNING
A number of federal and state policies guide the planning, development, maintenance, and
operation of the transportation network. As tends to be the case with federal and
State policies, their implementation is accomplished with the development of regulations, often
with tight ties to funding. Federal regulations most closely related to this chapter include:
•
•
•
•
Title VI, Civil Rights Act, and specifically the Americans with Disabilities Act of 1990 (ADA) and
the Executive Order concerning Environmental Justice;
Clean Air Act;
Planning requirements under the Intermodal Surface Transportation Efficiency Act of 1991 (ISTEA),
and the subsequent Transportation Equity Act of 1998 (TEA-21); and,
Federal historic preservation regulations also affect transportation planning, project development and
construction.
The most recent federal transportation planning efforts are included within the Transportation Equity
Act for the 21st Century (TEA-21). This act largely reaffirms the tenets of the ISTEA. This legislation
sets out all federal transportation funding programs and the planning requirements of those programs. For
instance, TEA-21 spells out the existence of the Transportation Enhancement Program, the minimum
level at which it will be funded, and the general principles and intentions of the program. Also,
requirements for transportation/land use plans for urbanized areas are also included in ISTEA and TEA21. Administrative rules are used to flesh out these and other federal program requirements. Monies from
ISTEA and TEA-21 were used to finance the STH 45 project and will be used to make improvements to
STH 15.
WDNR STATE RECREATIONAL TRAIL NETWORK PLAN2
The State Recreational Trail Network Plan (see map on next page) was drafted by WDNR and approved
by the Wisconsin Natural Resources Board. The plan provides a long-term, big-picture vision for
establishing a comprehensive trail network through Wisconsin. It identifies existing and proposed
trails and connections that would serve as the main corridors for a statewide trail system. The plan does
not include every trail in Wisconsin, just the major arteries. It focuses mainly on abandoned rail corridors,
utility corridors, critical road connections, and natural feature corridors that link places where people live
and play, natural resource features, public lands and other destinations.
The State Recreational Trail Network Plan recognizes that trails developed by local units of governments
serve as critical links. Under the plan, WDNR staff will continue to work with local governments and
encourage them to connect trails onto this network as they update local plans. On the State Recreation
Trail Network Map the WIOUWASH Trail is the only trail shown in the Town of Hortonia (#57).
2
Text modeled from language provided on WDNR State Recreational Trail Network Plan website, 2005.
5-7
SOURCE: Map courtesy of Wisconsin Department of Natural Resources State Recreational Trails Network Plan, 2005.
5-8
WISCONSIN STATE BICYCLE PLAN 2020
The Wisconsin Bicycle Transportation Plan 2020 was drafted by WisDOT in December 1998. The vision
statement in the plan is: “To establish bicycling as a viable, convenient and safe transportation choice
throughout Wisconsin.” The document included nine chapters: (1) Plan Vision, (2) Goals and Objectives,
(3) Current Bicycling Conditions, (4) Benefits and Impacts of Bicycling, (5) Public Involvement,
(6) Intercity, (7) Urban/Suburban, (8) Bicycle Safety, and, (9) Implementation. In the implementation
section, WisDOT identified the roles and responsibilities of various levels of state and local government.
Local governments are encouraged to:
•
•
•
•
•
•
•
Develop, revise, and update long-term bicycle plans and maps;
Consider the needs of bicyclists in all street projects and build bicycle facilities accordingly;
Promote and offer bicycle safety programs;
Consider providing locker room facilities for employees;
Consider bicycle racks on buses;
Encourage business involvement as a means to increase bicycle commuting and other functional trips;
and,
Help promote bike to work/school day.
Hortonia’s ability to support trail development is closely tied to its support for planned trails identified
within the WDNR State Recreational Trail Network Plan, coordination with Outagamie County with
respect to planned County Trunk Highway upgrades and implementation of the Outagamie County
Greenway Plan, and coordination with local developers and citizen groups who may consider trails as
part of subdivision developments or in other areas.
OUTAGAMIE COUNTY GREENWAY PLAN
Currently, 213 miles of greenways are proposed within Outagamie County as part of the Outagamie
County Greenway Plan. The proposed greenways will eventually connect the Outagamie County system
to trails and points of interest located outside of the County. The plan recommends trail corridors
along the Wolf River, CTH M, and the Wisconsin Central Limited Railroad Line in the Town of
Hortonia.
Given financial and environmental constraints, the likelihood of establishing a trail route along the Wolf
River is limited. Furthermore, the Wisconsin Central Limited Railroad corridor passing across the Town
is still an active railroad corridor. Given the planned improvements to STH 15, and the fact that this
corridor runs parallel to the Wisconsin Central Limited Railroad Line, the Town of Hortonia would
support a trail being developed adjacent to that corridor. Moreover, the Town supports the proposed trail
along CTH M, which could connect to the east-west rail-to-trail corridor developed north of Hortonia that
connects New London to Oneida.
WISCONSIN STATE HIGHWAY PLAN 20203
Wisconsin's State Trunk Highway system, consisting of approximately 11,800 miles of roads, is aging
and deteriorating at the same time traffic is increasing. In response, WisDOT, in partnership with its
stakeholders, developed the WisDOT State Highway Plan 2020 - a strategic plan that considers the
highway systems current condition, analyzes future uses, assesses financial constraints, and outlines
strategies to address Wisconsin's preservation, traffic movement, and safety needs. The plan is updated
3
Information in this section obtained from the WDOT web site.
5-9
every six years to reflect changing transportation technologies, travel demand, and economic conditions
in Wisconsin.
In relation to Hortonia, the relocation of STH 45 was undertaken as a result of the WisDOT State
Highway Plan 2020. Similarly, STH 15 is classified as a connector highway in WisDOT State Highway
Plan 2020, which means it has been designated as a highly important state roadway which requires
improvements through/around Hortonville that will impact the Town of Hortonia.
MIDWEST REGIONAL RAIL
INITIATIVE PLAN
Since 1996, the Midwest Regional Rail
Initiative (MWRRI) advanced from a series
of service concepts, including increased
operating speeds, train frequencies, system
connectivity and high service reliability, into
a well-defined vision to create a 21st century
regional passenger rail system. This vision
has been transformed into a transportation
plan known as the Midwest Regional Rail
System (MWRRS). The primary purpose of
the MWRRS is to meet future regional travel
needs through significant improvements to
the level and quality of regional passenger
rail service. The major MWRRS elements
will improve Midwest travel. These elements
include:
•
•
•
•
•
Use of 3,000 miles of existing rail rightsof-way to connect rural, small urban and
major metropolitan areas throughout
Minnesota, Iowa, Missouri, Illinois,
Indiana, Ohio, Michigan and Wisconsin.
Operation of “hub-and-spoke” passenger rail system through Chicago to locations throughout the
Midwest.
Introduction of modern train equipment operating at speeds up to 110 mph.
Provision of multi-modal connections to improve system access.
Improvements in reliability and on-time performance.
The cost to provide the improvements needed to facilitate a Chicago-Milwaukee-Minneapolis/Outagamie
Route would be $978 million, including rolling stock (i.e. passenger cars) and infrastructure
improvements (i.e. track improvements). If the plan is carried out, residents of Hortonia will be able
to access a bus in Oshkosh, which will connect in Milwaukee to a high-speed rail line. The current
schedule provided in the MWRRS plan calls for the entire project to be completely on-line by 2012. The
first phase of the MWRRS plan in Wisconsin calls for 110 mph rail service between Madison and
Milwaukee, and continuing to Chicago.
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EAST CENTRAL WISCONSIN REGIONAL PLANNING COMMISSION
The East Central Wisconsin Regional Planning Commission (ECWRPC) has adopted transportation goals
and supporting objectives, which it uses to evaluate transportation plans developed in the region. As part
of the comprehensive planning process, these goals were reviewed to ensure consistency with the Town of
Hortonia Comprehensive Plan. Many of the ECWRPC goals relate to services and facilities that are not
available in the Town of Hortonia (i.e. airports, etc.).
The overall goal for the regional transportation program is, “to provide a safe, efficient and
environmentally sound transportation system that provides personal mobility for all segments of the
population and supports the economy of the region.” This statement is consistent with the vision and
goals set forth by Hortonia. To support this overall goal, the ECWRPC has outlined a series of objectives
pertaining to: integrated planning, maximum street effectiveness, an efficient street and highway system,
safety, minimum environmental disruption, compatibility with land use patterns, conservation of energy,
and multi-modal interaction. Each of these objectives is addressed to the fullest extent practical in this
plan.
OUTAGAMIE COUNTY TRANSPORTATION PLANNING EFFORTS
The primary planning tool for transportation improvements in
Outagamie County is the five-year Capital Improvements
Program (CIP). This plan is prepared each year to identify major
projects and financial commitments to be undertaken during the next
five years. In Outagamie County, a capital improvement project is
defined as an acquisition or improvement of land, facilities or
equipment with a cost greater than $50,000 in one or consecutive
years. The current Outagamie County Capital Improvements
Program 2005-2009 includes two projects in Hortonia:
•
Project 03-11 is to
place the upper layer
of asphalt surface on
CTH TT over the lower layer completed in 2004. This
project is scheduled for completion in 2005 (see map).
•
Project 04-09 calls for resurfacing of CTH M in 2006 (see
map).
•
WisDOT’s six-year program includes a resurface project
on STH 15 in 2007.
No additional projects are identified in the Town of Hortonia as part of the County CIP. The Town
of Hortonia will continue to coordinate with the Outagamie County with respect to any planned
transportation improvements within the Town.
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PASER RATING SYSTEM REPORT
The Town of Hortonia contracts with Outagamie County to evaluate all roads in accordance with
WisDOT requirements using Pavement Surface Evaluation and Rating (PASER) every other year.
PASER is a visual inspection system to develop a condition rating for community roads. PASER is an
important tool for smaller governmental unit planning because it gives a picture of road conditions on all
roads and can identify candidates for maintenance and rehabilitation. Surface defects, cracking and
potholes are all examined during a typical PASER evaluation. Paved roads are rated 1 – 10 based on their
condition. Gravel roads are rated 1-5.
Paved Roads
Rating
Rating 9 & 10
Rating 7 & 8
Rating 5 & 6
Rating 3 & 4
Rating 1 & 2
Need(s)
no maintenance required
routine maintenance, crack sealing and minor patching
preservative treatments (seal coating)
structural improvement and leveling (overlay or recycling)
reconstruction
Gravel Roads
Rating
Rating 5
Rating 4
Rating 3
Rating 2
Rating 1
Need(s)
no maintenance required
good; routine maintenance
fair; ditch improve. & culvert maintenance; gravel in some areas
Poor; new aggregate; ditch reconstruction & culvert maintenance
Failed; rebuilding
It is important to understand that the roads were rated in segments. As a result, a portion of a particular
road may rank as 9, whereas a different segment may only rank as 6. These fluctuations can greatly
impact the overall need for construction improvements.
Table 18 provides the total number of miles of roadway in the Town by each PASER rating. The overall
average Town PASER rating was 6.4. According to the PASER manual, it is recommended that
communities strive to attain a rating of 7 for all paved roads.
TABLE 18
MILES OF ROADWAY BY PASER RATINGS
PASER
RATING
ROAD SEGMENT NAME
1
2
3
4
5
6
7
8
9
10
None
None
East St , Givens Rd (from Shady Acre to Winchester), Grove St, S. Park St
Cross St, Givens Rd (from Manske to Shady Acre La), Pheasant Run, River Rd, Schultz Rd
Algoma St, Everts Ln, Greendale Rd, Lone Hickory, Winchester Rd (CTH TT to Schultz Ro)
Butternut Rd, Deer Brook Ln, Oak St., Shady Acre La
None
None
Beckert Rd, Douglas St, Forevergreen Ct, Kelly Dr, Ledge Hill Rd, Midway Rd, R&D Road
Falling Wing Ln, Gilwin Ln, Hillview Rd, Quiet Ln, Whitetail Trl, Woodhaven Ln, Wooduck Ct
SOURCE: 2004 PASER Ratings
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The Town considers local road maintenance a very high priority. To prioritize road improvement projects,
Hortonia developed a 5-Year Capital Improvement Plan in 2000. That plan has served as a guide for
upgrading more than half of Hortonia’s roads over the last five years. The Transportation Network Map
& Plan indicates those roads to be improved over the next five years as part of the next capital
improvement plan to be completed by the Town.
To complete maintenance projects identified within the Town’s Capital Improvement Plan, Hortonia
contracts with the Outagamie Highway Department to provide crack sealing, seal coating, patchwork,
pothole repair, routine guardrail maintenance, bridgework, line painting services, and sign
upgrades/repairs/replacement. Outagamie County is also under contract with the Town to maintain (i.e.
mow/clear) ditches and plow streets in the winter.
COMPARISON TO STATE AND REGIONAL PLANS
Jurisdiction over transportation facilities and services is divided among several layers of government (i.e.,
State Highways, County Trunk Highways, and Town Roads). Planning for the transportation network in
the Town of Hortonia requires coordination among these jurisdictions. During the development of this
plan, the Town researched regional and state transportation plans, policies, and programs (several of
which are highlighted in this section). The most significant future transportation project will be
improvements to STH 15. This corridor was of central consideration as the Future Land Use Maps were
prepared.
The transportation goals, policies, objectives, and programs in this plan seek to complement regional
transportation goals, objectives, policies, and programs by providing local transportation facilities and
services that connect to county, regional, and state facilities. Moreover, the goals seek to recognize
existing and expand future partnerships between Hortonia and Outagamie County, WisDOT, WDNR,
Hortonville and other neighboring communities.
Transportation Issues and Concerns
What follows is a discussion of area transportation issues and concerns raised during the planning
process. Actions to address these items are provided in the Transportation section of the Implementation
chapter.
FUTURE OF STH 15
WisDOT is currently in the planning phases of a project that will either realign the STH 15 corridor
around the Village of Hortonville or widen the corridor as it passes through the Village. There is a great
deal of discussion happening at this point as the alternative alignments are being considered. All of the
proposed alignments will impact the Town of Hortonia. Direct impacts will likely include:
•
•
•
•
•
•
Property acquisition issues;
Potential losses of farmland (or division of farm fields by the corridor);
Impacts on natural habitats;
Access issues (no direct access will be permitted along the new corridor – access will be limited to
either end of the corridor);
Business development opportunities; and,
The need to relocate the Town Hall (particularly if one of the southern routes is selected).
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The primary indirect impact is the fact that improvements to the corridor will make it easier (faster) to
commute between Hortonia and the Fox Cities. As a result, more people may “discover” the community
and seek to relocate to Hortonia. An abundance of development may change the rural character of the
community (i.e. as has been experienced in Greenville and is also being seen, though to a lesser degree, in
the Town of Dale with the USH 10 realignment).
MAINTAIN RURAL ROAD CHARACTER
One technique to maintain rural roadside character (and control
traffic access is to utilize managed roadway access techniques.
“Roadway access” refers to the number of points of ingress and
egress from a roadway. Managing roadway access points helps to
promote safe and efficient travel and minimizes disruptive and
potentially hazardous traffic conflicts. Managed roadway access
involves minimizing the number of driveways along a roadway
and establishing standards for driveway spacing. Rather than
promoting driveway after driveway along rural roads, shared
driveways and streets are encouraged (see diagram).
Driveway/roadway spacing is determined based on the posted
speed limit, not property lines. The table details possible spacing
requirements Hortonia may want to consider enforcing on local
roads.
Posted Speed
Limit (MPH)
25
30
35
40
45+
What is Connectivity?
The purpose of a street network is to
connect spatially separated places
and to enable movement from one
place to another. With few
exceptions, a local street network
connects every place in a community
to every other place in the
community. But, depending on the
design of the network, the quality of
those connections will vary. A
community with good connectivity will
have many connections. A
community with poor connectivity will
have many dead-end roads.
•
•
Minimum Driveway
Spacing (in Feet)
90 - 125
155
185
225
300
SOURCE: E. Humstone & J. Campoli, Access Management: A Guide for Roadway
Corridors, Planning Commissioners Journal, Winter 1998.
CONNECTIVITY
One of the transportation weaknesses identified by residents at the
Kick-Off Meeting held in February 2005 was a perceived lack of
connectivity. Residents indicated there are many dead-end roads in
the Town. In reviewing the Transportation Network Map and Plan,
the road network is actually very well connected with relatively few
dead end roads. The issues with connectivity appear to be more
related to the fact that STH 15 bisects the community and the Wolf
River further divides the Town from its neighbors to the north.
These physical constraints are not going to change over the life of
this plan. To ensure that Town maintains a high level of
connectivity, the Town should:
Encourage developers to consider connections to existing subdivisions and looping roads in new
developments instead of cul-de-sac development.
Monitor traffic patterns to consider long-term needs for future road connections between section
roads. Today, most of the Town’s roads are along section lines (spaced approximately 1 mile apart).
In the future, it may be necessary (in some locations) to consider internal connection roads. These
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internal connection roads are typically spaced at ½ mile intervals. The Town should seek to limit
development patterns that would prevent the construction of future internal roads by using an Official
Map (see description in box on next page).
(Left) A high-connectivity street network. (Right) A low-connectivity street network).
SOURCE: Planning for Street Connectivity, PAS Report 515, by Susan Handy, Robert G. Paterson & Kent Butler, 2003
TRAIL DEVELOPMENT
Several residents at the Kick-Off and Vision Meetings held in early 2005 indicated trail development was
an opportunity for the Town of Hortonia to consider. Residents are interested in improving opportunities
for walking and cycling, in particular, extending the WIOUWASH trail.
To successfully establish trails and bicycle routes, the Town of Hortonia should coordinate with
Outagamie County, WisDOT, WDNR and neighboring communities. Most importantly, the Town will
need to communicate with residents to identify routes that are desirable for trail users and acceptable to
landowners.
Opportunities for trail development exist along the Wolf River and CTH M (as recommended on the
Outagamie County Greenway Plan) and along STH 15 (in conjunction with the realignment/expansion
project) or the Wisconsin Central Limited Railroad Corridor (as recommended in the WDNR State
Recreational Trails Plan). If developed, these trails would provide connections between Hortonia and
several other regional trails (i.e. rail-to-trail between New London and Oneida, Fox Cities and Oshkosh
via WIOUWASH). The development of a trail along the Wolf River may prove difficult given private
property acquisition issues, as well as natural resource concerns. Moreover, a trail along the Wolf River,
while probably more scenic and peaceful, would provide the same connection as a trail along the
Wisconsin Central Limited Railroad Corridor, or perhaps adjacent to the STH 15. In addition, a trail in the
railroad or highway right-of-way would be closer to the Town Hall site - offering the possibility of
connection to this local destination as a point of interest/trail resting point.
5-15
What is an Official Map?
In addition to trails, bicycle routes are possible on CTH T and CTH TT.
These routes would provide rural alternative bicycle connections to the
WIOUWASH Trail.
WisDOT is considering an extension of the WIOUWASH State Trail
from the Village of Hortonville to the City of New London as part of the
future STH 15 bypass.
Funding opportunities exist through the WDNR and WisDOT to help
finance trail and bicycle route projects. To help support trail development
efforts, the Town of Hortonia should consider including trail routes on
any Official Map (see box) adopted by the Town. The WisDOT “Safe
Routes to School Program” provides funding for the development of
pedestrian and bicycle facilities. For additional information, please visit
www.dot.wisconsin.gov/localgov/aid/saferoutes.htm.
An official map is one of the oldest plan
implementation devices at the disposal
of a local community. It is used to
manage the problem of reserving land
for future public use. Section 62.23(6) of
the Wisconsin Statutes provides that the
governing body of any local municipality
may establish an official map for the
precise identification of right-of-way
lines and site boundaries of streets,
highways, waterways, and parkways,
and the location and extent of railway
right-of-ways, public transit facilities,
and parks and playgrounds. Such a
map has the force of law and is deemed
to be final and conclusive with respect
to the location and width of both existing
and proposed streets, highways,
waterways, and parkways, the location
and extent of railway right-of-ways
public transit facilities, and parks and
playgrounds.
It is important to note here that not all residents favor trails and bicycle
routes. Two common issues expressed by residents opposed to trails are
the potential for decreases in property values and impacts on private
property (i.e. vandalism and crime). Studies have shown that trails in northeast Wisconsin actually
increase property values for homes located along established trail routes and increase exposure (and
profits) for local businesses that have trail access. As is sometimes speculated, elevated vandalism and
crime rates have not been seen along trail routes. 4
Facility
Trail
Trail
TABLE 19
RECOMMENDED TRAIL ROAD IMPROVEMENT PROJECTS
Segment
Potential Project Description
Purpose
CTH M –
North of
Hortonville
Between
Hortonville
and New
London and
Beyond.
Bike
Route
CTH TT
Bike
Route
CTH T
Develop a trail along CTH M, north of
Hortonville to the Town Limits.
Will provide north/south trail access to reach other
existing and proposed trail systems.
Trail corridor extension from existing
WIOUWASH Trail on the south side
of Hortonville to the west. Trail could
extend along Wisconsin Central
Limited Railroad, STH 15 or off-road
area in between.
Provide signage designating this
route as a bicycle route.
Extend the WIOUWASH Trail between Hortonville,
New London and the Town of Mukwa to support
regional trail development efforts.
Provide signage designating this
route as a bicycle route.
To provide a rural route for bicyclists living in
Hortonia and other areas of Outagamie County to
connect between Hortonville and Waupaca
County.
To provide a rural route for bicyclists living in
Hortonia and other areas of Outagamie County.
4
Fox River Trail Study, Brown County Planning Commission December 2001.
5-16
INTERSECTION CONCERNS
During the Cognitive Mapping Exercise conducted on February 9, 2006, residents identified three
intersections as having seemingly unsafe conditions. These same intersections are indicated on the
Transportation Network & Plan Map as intersections of concern. Traffic studies to determine the extent
of any issues and necessary improvements are recommended. Given that these intersections are each
along State highway corridors, coordination with the DOT will be important.
CREATING A WALKABLE COMMUNITY
5
Creating a “walkable community” provides commercial and residential development strategies to enhance
opportunities for multi-modal transportation in Hortonia. Local ordinances can be drafted to include
requirements that trails be incorporated into future residential subdivision projects. The following
recommendations are aimed at improving walkability within the Town:
•
Providing linkages (including walkways, trails, and roadways) between neighborhoods and to
destination nodes. People need to have choices for traveling. Offering well-maintained roads,
walkways, and trails provides improved access for residents. To accomplish this, Hortonia can
coordinate with Outagamie County to establish designated bicycle routes on CTH TT and CTH T. In
addition, Hortonia can work with WisDOT, Outagamie County, Hortonville, and the Town of Mukwa
(Waupaca County) to extend the WIOUWASH Trail and complete a trail along CTH M. These routes
and trails are identified on the Transportation Network Map & Plan.
•
Coordination with WisDOT, Outagamie County, Hortonville, New London and the ECWRPC to
establish a trail route adjacent to the STH 15 corridor as part of the realignment/expansion project.
This route is desirable as it would provide a direct trail connection between Hortonville and New
London in a location that is more feasible than either the railroad corridor (given their reluctance to
vacate) or the Wolf River route (due to acquisition difficulties and environmental impacts).
•
Enforce low speed streets in residential areas. To promote a walkable community, motorists must
respect speed limits in all areas, but particularly near areas where the public may congregate (i.e. in
subdivisions at any planned trail crossings).
DRIVEWAY AND CULVERT ORDINANCES
An issue of concern often expressed in townships is the length and distance between driveways.
Extremely long driveways can present safety concerns with respect to emergency fire vehicle access and
visibility during an emergency. Driveways that are located too close together can also present problems.
A local driveway and culvert ordinance regulates the length and location of driveways and the
minimum design standards for culverts. These ordinances require people interested in development to first
obtain a driveway permit from the Town. Accordingly, the local driveway permit becomes the first step in
pursuing development. The Town of Hortonia adopted a driveway and culvert ordinance in June of 2005.
5
Based on the information available from Walkable Communities, Inc., as prepared by Dan Burden, a nationally
recognized authority on bicycle and pedestrian facilities and programs.
5-17
TRANSPORTATION BUDGETING
Another long-standing transportation issue is the ever-present concern of road maintenance and
improvements costs. Town road projects are a major expense and can consume a large share of the limited
Town budget. This plan recommends strategies to help Hortonia to effectively budget for these costs over
time.
Since 2000, the Town has used a Capital Improvements Plan (CIP) to match future capital
improvement costs, such as roads, to anticipated revenues. CIP are usually prepared for five or six years
into the future and reviewed annually as part of the budget process.
To develop a CIP it is necessary to first identify and then prioritize capital expenditures. An estimated
cost and means of financing each capital expenditure is then documented. The desired expenditures are
compared to the budget to determine annual spending priorities. This process helps to ensure that
improvements are made in a logical order and do not “surprise” Town officials or taxpayers. This process
is very similar to that used by Outagamie County and WisDOT in preparing their respective CIP.
Currently, the Town of Hortonia Board reviews the CIP as part of its annual budget process. To remain
current, the CIP must be updated every five years. Accordingly, the 2000 CIP is due for updating in
2006. To effectively link the planning priorities identified in this plan to the budget process, the Town
Board may want to consider having the Town Planning Commission review the CIP and recommend
project priorities, thereby linking planning to the annual budgetary process.
Transportation Programs
RUSTIC ROADS6
The Wisconsin Legislature established the Rustic Roads Program in 1973 to help
citizens and local units of government preserve what remains of Wisconsin's scenic,
lightly traveled country roads. Unique brown and yellow signs mark the routes of all
officially designated Rustic Roads. These routes provide bikers, hikers, and
motorists an opportunity to leisurely travel through some of Wisconsin's scenic
countryside. The Town may submit an application to WisDOT to have one or more of its roads
designated. CTH MM is currently listed as a rustic road. To qualify for the Rustic Roads Program, a road:
•
Should have outstanding natural features along its borders such as rugged terrain, native vegetation,
native wildlife, or include open areas with agricultural vistas which singly or in combination uniquely
set this road apart from other roads;
•
Should be a lightly traveled local road, one which serves the adjacent property owners and those
wishing to travel by auto, bicycle, or hiking for purposes of recreational enjoyment of its rustic
features;
•
Should be one not scheduled nor anticipated for major improvements which would change its rustic
characteristics; and,
•
Should have, preferably, a minimum length of 2 miles and, where feasible, should provide a
completed closure or loop, or connect to major highways at both ends of the route.
6
Text excerpted from WisDOT Rustic Roads website, 2005.
5-18
In order to begin the process for Rustic Road designation, the Town should identify roads it would like to
see included as part of the Rustic Roads system. The next step would be to initiate and circulate petitions
among resident property owners along the candidate road. WisDOT encourages local governments to
work with civic, recreational, and environmental groups to publicize and encourage the success of the
Rustic Roads program. An application for Rustic Roads designation can be found by visiting the WisDOT
website at www.dot.wisconsin.gov/travel/scenic/rusticroads.
Coordination with Other Required Plan Chapters
ISSUES AND OPPORTUNITIES
The Issues and Opportunities Chapter establishes the framework for planning. The chapter lists strengths,
weaknesses, opportunities and threats, as well as important local values identified by residents. These
ideas provide the basis for developing this plan. The Transportation Chapter Vision presented in this
chapter was created in response to the strengths, weaknesses, opportunities, threats and values outlined in
the Issues and Opportunities Chapter. This Transportation Vision will impact the way the Town considers
and approves changes to the transportation network. To realize the vision presented in this chapter, the
Town should focus on maintaining its quality roadways and establishing bicycle routes and trails.
HOUSING
Every new home is estimated to generate 10 vehicle trips per day.7 These include trips by the resident(s)
to school, work, shopping and other destinations, as well as trips by school busses, postal route drivers,
private delivery services, service repair providers, etc. to the home. This increased traffic, over time, can
impacts traffic volumes on the local road network. As a result, transportation impacts should continue to
be considered with any new subdivision and commercial development projects. As necessary, the Town
may want to require traffic impact studies (at the expense of the developer) to ensure that new
development will not overwhelm existing transportation facilities.
AGRICULTURAL, NATURAL AND CULTURAL RESOURCES
The critical question with respect to the Transportation Chapter and this chapter is: how will changes to
the transportation system impact the preservation /protection of environmental resources? Given the
development limitations presented by the local wetlands, floodplains and geologic features in Hortonia,
new road construction (and associated development) must continue to respect these attributes in
accordance with Hortonia’s codes and ordinances. This is particularly the case along the northern Town
limits where the Wolf River and its associated wetlands are located.
Transportation access (and to a lesser degree visibility) can offer economic opportunities. STH 15 and
USH 45 pass through portions of the Town of Hortonia. At the Kick-Off Meeting residents expressed an
interest in allowing business development along these corridors to capitalize on the high volume of traffic
(i.e. customer base) passing by. At the same time, it is important not to line the corridors with
development because overdevelopment can create congestion, which is why a bypass (or widening
through Hortonville) of STH 15 is now necessary. If overdevelopment occurred along the new corridor, a
bypass of that route would be needed. It is for this reason that WisDOT enforces access limitations along
7
SOURCE: Institute of Transportation Engineers Trip Generation Manual
5-19
its corridors. In fact, WisDOT plans call for no additional direct access to be provided to the highway
corridor for parcels with frontage along STH 15 and no change of existing access to a higher use. Access
would be restricted to the north and south ends of the corridors. The Town’s plan for balancing economic
opportunities and transportation access is reflected on the Future Land Use Maps.
LAND USE
What steps will be taken to ensure that transportation decisions and land use decisions are compatible?
Although transportation is not the only influence on land use, it is important to be aware that decisions
regarding the transportation system may impact land use both directly and indirectly. Direct impacts are
caused by the construction of a new transportation facility, changes to an existing facility, and/or
decisions to change traffic patterns along a facility. These may result in positive or negative impacts. For
the Town of Hortonia, the future of STH 15 has the most potential to impact land use in the community.
This concept was carefully considered when creating the Future Land Use Maps.
INTERGOVERNMENTAL COOPERATION
The Town of Hortonia has a strong history of intergovernmental cooperation with respect to
transportation issues. The Town currently coordinates with Outagamie County with respect to road
maintenance work, including: crack sealing, seal coating, patching, pothole repair, routine guardrail
maintenance, bridge work, line painting, sign repair/replacement, and ditch clearing. The Town also has a
contract with the County to handle snowplowing. With the new USH 45 corridor project and the on-going
planning activities related to STH 15, the Town has also been coordinating closely with WisDOT with
respect to the future of these two important corridors. An additional opportunity exists to expand
coordination efforts with WisDOT, Outagamie County and neighboring communities to establish new
trails and bicycle routes.
Transportation goals, policies and objectives can be found in the Implementation Chapter at the end of
this document (chapter 12).
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6.0
UTILITIES & COMMUNITY FACILITIES
Introduction
To learn more, also see…
For a Town to plan successfully for the future, utilities
and community facilities are important factors in
determining development potential and quality of life.
This information, coupled with the demographic trends
and projections, provides a realistic picture of service
supply and demand. The community facilities and
utilities discussed in this chapter were carefully
considered in the development of the Future Land Use
Maps.
•
•
•
The Agricultural, Natural and Cultural
Resources Chapter for information about
groundwater and soils.
The Housing Chapter for information about
senior housing choices.
The Transportation Chapter for information
about planned trails and capitol
improvement planning.
Wisconsin’s Comprehensive Planning Law includes 14 goals for local comprehensive planning. Of those
goals, those listed below specifically relate to planning for utilities and community facilities in Hortonia:
•
•
Promotion of the redevelopment of lands with existing infrastructure and public services and the
maintenance and rehabilitation of existing residential, commercial and industrial structures.
Providing infrastructure and public service and an adequate supply of developable land to meet
existing and future market demand for residential, commercial and industrial uses.
Utilities and Community Facilities Vision
In 2025, the Town of Hortonia coordinates with Outagamie County and nearby
communities to ensure that residents have easy access to efficient services and
quality facilities. Property taxes in the Town remain stable by controlling debts,
maintaining Town equipment and using volunteers whenever possible. The Town
has been able to reduce costs by entering into shared service agreements with
neighboring communities.
The primary additions to the Town, with respect to community facilities, is a new
Town Hall and park site. An adjacent park has been established to provide
residents a convenient location to gather. The old Town Hall has been preserved
and is used for special meetings and as a museum. With respect to utilities, by
2025 high-speed Internet access is available in the majority of the Township.
Town of Hortonia Comprehensive Plan - Utilities & Community Facilities Chapter
6-1
Utilities Inventory– Location, Use, Capacity
What follows is a description of existing utilities available within Hortonia. This section documents those
utilities provided by Hortonia, Outagamie County, neighboring communities and private providers.
WASTEWATER COLLECTION & TREATMENT FACILITY
Development in the Town of Hortonia is accommodated with private on-site wastewater treatment
systems (POWTS). These systems must comply with state plumbing code (COMM 83), which is
designed to ensure septic systems do not threaten groundwater resources and to keep each permitted
system functioning properly over the course of its lifetime. These systems must be properly permitted by
Outagamie County and maintained as required by County Ordinances.
WI Fund Grant
The WI Fund provides financial
assistance to homeowners in the
rehabilitation or replacement of failing
septic systems. The type of septic
failure, household income and state
funding determines grant eligibility. For
additional information, contact the
Outagamie County Zoning Department
or the WI Department of Commerce.
Properties located northwest of Beckert Road are located within the
New London Sanitary District, but the properties are still served by
POWTS and private wells. When these wells and POWTS fail,
these properties are required to utilize the City of New London
sanitary system. This is only the municipal sanitary system located
within the Town.
The cost of developing a Town-wide sewer system is not practical
given the scattered development located within the Town.
However, there is great potential in the future with conservation
subdivisions (see Chapter 4.0 Housing) to develop clustered sanitary facilities. Clustered sanitary
systems cost property owners less to install/maintain, particularly in conservation subdivisions, and have
fewer environmental impacts. Some current options for clustered sanitary systems include re-circulating
sand filters, infiltration wetlands, and The Living Machine System. The Town supports clustered
POWTS systems for new developments.
•
Re-circulating Sand/Gravel Filters
Re-circulating sand/gravel filters (RS/GF) offer an
economically viable, environmentally benign
alternative to conventional drain field-based
treatment systems. The basic components of a
RS/GF system include a septic tank, recirculation
tank, and sand or gravel filter. Water discharged
from the system far exceeds the quality of a
conventional system, and at a fraction of the price.
RS/GFs have been in use for more than a century
and are a WDNR permitted alternative to septic
tanks and mound systems.
SOURCE: ToolBase Services, 2005.
6-2
•
Infiltration Wetlands
Infiltration wetlands have been used as effective
wastewater treatment systems for more than thirty
years. They have become the dominant treatment
system for communities in the Minneapolis
metropolitan region not served by municipal
wastewater treatment. Although there are a variety
of wetland-based systems used to treat effluent, the
most common is a sub-surface flow wetland. SubSOURCE: North American Wetlands Engineering, 2004.
surface flow wetlands utilize an anaerobic reactor
(septic tank) for pretreatment followed by a forced-bed aeration system and wetland treatment cells.
Infiltration wetlands are designed to achieve tertiary treatment at a fraction of the cost of a municipal
system. They become cost-effective at the small scale when treating effluent from eight or more homes.
•
Living Machines®
Living Machines are a patented wastewater treatment system that is growing in popularity around the
world. They entail a series of tanks teeming with live plants, trees, grasses algae, fish, shrimp, snails and a
diversity of microorganisms and bacteria. Each tank is a mini-ecosystem designed to eat or beak down
waste. The process takes about four days to turn wastewater crystal clear. It is chemical-free, odor-free,
and, compared to conventional wastewater treatment, costs less financially and ecologically.1 Living
Machines are WDNR permitted systems and are currently in use at the Conserve School in Land O’ Lakes,
at Cedar Grove Cheese Factory in Cedar Grove, and at Edgewood College in Madison.
SOURCE: Living Machines, Inc., 2001.
The Town supports the continued use of POWTS, as approved by the Town and County. Based on soil
conditions, current and anticipated development densities, state laws governing POWTS and anticipated
future technologies in private waste disposal, a municipal sanitary system is not needed for the Town.
STORM WATER MANAGEMENT
Open grass-lined natural drainage ways (i.e. ditches) slow the flow of
stormwater, reduce erosion, filter pollutants, and allow infiltration of the
groundwater in Hortonia. As has been the tradition, Hortonia will
continue to use open, grass-lined drainage ways as its primary tool for
stormwater control (as compared to curb and gutter found in urban
areas). This will require periodic clearing of ditches to remove
overgrown areas to facilitate stormwater flow. The Town will seek to
notify adjacent property owners of clearing plans and respect natural
habitat areas to the greatest degree feasible in brush removal efforts.
1
Storm Water Runoff
What is storm water runoff? It is water
from rainstorms or snowmelt that flows
over the land rather than evaporating or
soaking into the ground. Areas with
more impervious surface (i.e. roads,
sidewalks, rooftops and parking lots)
generate more storm water runoff.
Excerpted from The Living Machine, Jeff Wolovitz, Penn State Department of Research and Policy, 2000.
6-3
Given the agricultural and rural residential character of Hortonia, existing practices will meet most future
development needs. However, development adjacent to highways may require curb and gutter,
particularly for commercial development with significant areas of impervious surface. It is important to
remember that proper stormwater management practices are applied so water resources are protected. To
protect critical water resources, the Town will pursue the following activities:
•
Watershed Planning. All watershed planning activities in the Town of Hortonia will be coordinated
with the Outagamie County Land Conservation Department to identify critical habitats, aquatic
corridors and water pollution areas.
•
Land Conservation Techniques. Land conservation techniques include: cluster and conservation
subdivisions, setbacks, buffers, land acquisition, and following the development patterns outlined on
the Future Land Use Maps.
•
Aquatic Buffers. Aquatic buffers are natural areas on either side of the Wolf River, Black Otter
Lake, and other local creeks and streams to buffer against runoff. The Outagamie County Shoreland
Zoning Ordinance requires a permit for any filling or grading activity within 300 feet of any
navigable stream as a minimum to protect the stream from harmful impacts.
•
Site Design Techniques. Effective site design techniques will encourage the use of natural
landscaping, limit impervious surface, enforce setbacks and buffers, and protect natural resources.
•
Stormwater Best Management Practices (BMP). Stormwater best management practices seek to
reduce stormwater pollutant loads, maintain groundwater recharge and quality, protect stream
channels and safely maintain the 100-year floodplain. Successful BMP’s include ponds, wetlands,
infiltration, filtering systems and open drainage channels. The County Subdivision Ordinance
requires use of BMPs.
•
Erosion and Sediment Control. Typically, erosion and sediment control requirements affect
construction sites and farming operations. To be effective, erosion and sediment control measures
need to extend beyond these two situations. Probably one of the most effective techniques is to
reduce the time that soil is exposed. As with the other mitigation techniques outlined in this
subsection, education will be critical to success.
WATER SUPPLY
Currently, water services are provided by private, on-site wells in
the Town of Hortonia. The Town of Hortonia has special water
regulations for well drilling to prevent arsenic contamination.
Arsenic is a naturally occurring element found with high
concentrations located in Northeast Wisconsin. Arsenic is released
into wells when exposed to air, usually through the drilling process
or through the lowering of the regional water table.
Well Compensation Program
The WDNR provides financial
assistance to homeowners in the
replacement of contaminated wells.
Grant awards can provide up to 75%
funding for the well replacement.
Additional information is available by
contacting the Department of Natural
Resources.
A “Special Well Casing Depth Area” has been established by the
Wisconsin Department of Natural Resources (DNR) for all of
Outagamie and Winnebago Counties. This is due to naturally occurring arsenic contamination of
groundwater affecting many wells in those two rapidly growing counties. High concentrations of arsenic
began showing up in area wells in the late 1980s. As rural areas of the counties began to develop, more
6-4
and more cases of arsenic-contaminated wells were detected. Samples from some wells contained arsenic
in thousands of parts per billion (ppb), some of the highest concentrations ever found in the world.2
To help reduce costs in new developments, shared wells are an ideal solution. A single shared/cluster can
serve 2-6 homes. Use of shared/cluster wells lowers the risks of arsenic contamination because only one
point of air exposure to the aquifer occurs versus 2-6 exposures for individual wells. In addition, the cost
for drilling and casing this type of well is shared by 2-6 homes as compared to a single homeowner. In
conservation subdivisions, because houses are clustered together the use of community wells is easier.
The Town encourages shared wells to help reduce the health risks associated with groundwater and well
contamination.
Given the low density of single-family residential development, it would be difficult to establish a costeffective water system to serve all areas of the community. Therefore, it is important that Town residents
maintain groundwater quality through construction site and agricultural erosion control practices, POWTS
maintenance and compliance with WNDR and County well requirements. Existing property owners
should annually monitor their wells to avoid arsenic exposure.
ELECTRICITY AND NATURAL GAS
We Energies provides electricity to the Town of Hortonia. To
provide this service locally, a transformer is located at the end
of Douglas Street in the Town. We Energies, a subsidiary of Wisconsin Energy Corporation, is a growing
energy-services provider with more than 1.1 million electric customers in Wisconsin and the Upper
Peninsula of Michigan. They have more than 1 million natural gas customers in Wisconsin.
Headquartered in Milwaukee, We Energies provides
electric generation, natural gas, water and steam distribution
services. Currently, natural gas is not available within the
Town. There is a natural gas distribution line located
within the Town on CTH TT. This line runs south into the
Town of Dale.
Electric Substation on Douglas Street
2
Excerpted from Special Well Casing Area in Outagamie & Winnebago Counties, WDNR, May 2005.
6-5
Community Facilities Inventory
This portion of the chapter profiles the community facilities available to Town residents, including
facilities operated by Outagamie County and private providers.
PARK AND RECREATION FACILITIES
The Town of Hortonia has stunning natural areas and scenic views throughout the community that add to
the unique, rural character of the Town. Presently, there are no local parks owned by the Town.3 At the
Vision Meeting held on March 16, 2005, residents expressed desire for a local park to gather at on the
weekends. As part of the Transportation Chapter of this plan, resident desire for trail facilities is
documented based on comments at the Vision Meeting, as well as local surveys.
The following park and recreation facilities are located within the Town:
•
•
•
•
•
The WIOUWASH Recreation Trail is located in the southeast corner of the Town, east of CTH M
and west of Greendale Rd. The trail and parking area contain 14.9 acres. The trail extends for 19
miles from the City of Oshkosh to Hortonville. In the summer, the trail accommodates runners,
walkers, bikers and horseback riding. In the winter the trail is used by snowmobiles. Along the trail,
users can find parking and picnic areas. WDNR plans show new trail connectors between New
London and Hortonville that may be located in Hortonia.4 (refer to the Transportation Network and
Plan Map in Chapter 5). If this trail connector goes through the Town, there will be more recreational
acreage and opportunities.
Buchman Access is a County owned facility
located along the Wolf River near CTH M. The
six-acre parcel provides access to the river via a
boat launch. Parking is available for 25
vehicles. A small picnic area is located at the
site along with the opportunity to fish from the
shore. The Outagamie County Outdoor
Recreation and Open Space Plan indicates no
improvements planned for this facility.
Wolf River Bottom Wildlife Area is a 46-acre
parcel of land located east of the intersection of
STH 45 and STH 15. This State facility
provides convenient fishing, wildlife viewing, and a public parking lot and dock.
Wolf River Wildlife Area is located along the southern shores of the Wolf River. The site covers
approximately 46.7 acres and is the smallest State recreational resource in Outagamie County. The
site is located one mile southeast of New London and can only be accessed via the Wolf River since
the area is landlocked.
Grandview Golf Club is a nine-hole golf course located at 135 John St. in Hortonville. 47.1 acres of
the course is located in the Town of Hortonia. The par-35 course has a clubhouse with a banquet
facility.
3
It is also important to point out that Hortonia residents do have access to park facilities available in New London and Hortonville. In addition,
given the rural nature of the community, residents generally have larger parcels (as compared to city lots) that provide areas for recreation and
outdoor enjoyment. These points are raised not to disregard the need for local park space, but rather, to explain why parkland has not been
established in the Town.
4
Wisconsin Department of Natural Resources
Data Available: http://www.dnr.state.wi.us/org/land/parks/reports/trails/ner.html
6-6
TABLE 20
Hortonia Existing Park & Recreational Acreage
Town Owned
County Owned
State Owned
Privately Owned
Total
0
20.9
92.7
47.1
160.7
SOURCE: Telephone Interview with Mike Hendrick, Outagamie County Planner, July 2005
Based on information from the SWOT exercise, Vision Meeting and to a lesser degree the community
survey, providing a local park facility and trails/bicycle routes is a priority to Hortonia residents. To
address this issue, it is first important to understand how much parkland is actually desirable. One way of
measuring the adequacy of a community’s recreational facilities is to determine the number of people
they serve or have the capacity to serve. The National Recreation and Park Association recommends a
community standard of 10 acres of local recreation land per 1,200 residents. The current population of
Hortonia is 1,072 persons (2004 DOA Population Estimate). To meet this standard, the Town would need
to provide at least 9 acres of parkland. By 2025, Hortonia’s population is projected to increase to 1,357
residents, which will mean the Town would need to provide 11.4 acres of parkland. The East Central
Wisconsin Regional Planning Commission recommends 10 acres of local recreation land per 1,000
residents. Based on this standard, almost 14 acres of parkland should be provided by 2025.
Currently, State and private recreation lands in Hortonia exceed these standards. As the population of
Hortonia grows, the Town may want to add more parkland.
Even though the national and ECWRPC park acreage standards are met, there still is no Town Park. The
Town should consider adding a park facility to provide outdoor recreational opportunities for citizens,
playfields for children, playground equipment and a covered pavilion to allow people to gather. A local
park provides residents a place of their own at which to gather. Instead of going to a nearby community,
County or State parks, residents can gather at their own park, providing them and the Town with more
local recognition.
Many Wisconsin towns look first at the properties they already own when considering park facilities. For
the Town of Hortonia that translates into a single parcel significantly less than one acre in size on which
the Town Hall is located. This site is not large enough to accommodate needed park space. Moreover, this
property will likely be altered with the realignment of STH 15. Locations for potential parks are
illustrated on the Utilities and Community Facilities Plan Map as well as the Future Land Use Maps.
To plan more specifically for the acquisition and design of a park facility the Town should develop an
Outdoor Recreation Plan, using this Comprehensive Plan as a general guide in that effort. This type of
detailed plan will include a specific action plan for developing local recreational facilities, including
potential funding sources. ECWRPC prepares outdoor recreation plans at no cost under its local
assistance program. Budget constraints will limit the Town’s ability to purchase and maintain park
facilities. By adopting and periodically updating an Outdoor Recreation Plan, the Town will become
eligible for State grant funds. Grants, donations, park impact fees (which are collected from developers
proposing any new land divisions or subdivisions and should be consistent with Act 4775) are all tools
available to offset taxpayer demands to develop and maintain a Town park.
5
Passed May 30, 2006, Act 477 updates impact fee legislation. Counties can no longer collect impact fees, and
municipalities can no longer use them for “other transportation uses,” “other recreational uses,” or vehicles. Fees
are to be collected from the builder or property owner within 14 days of the issuance of the building or occupancy
permit, must be placed in separate accounts, and must be spent within 7 years or refunded.
6-7
COMMUNICATION FACILITIES
Access to communication facilities is very important in the modern economy. The quality of
communication services depends on the capacity of the lines, towers and supporting infrastructure serving
the Town.
•
Local and Long Distance Telephone Service. AT&T and NTD (Northern Telephone and Data) are
the primary local telephone service providers to Hortonia. Each company offers services and
packages that are consistently upgraded to reflect new technologies and services. A variety of national
companies provide land-line long distance service to Hortonia, and many residents use their cell
phones to make long distance calls.
•
Internet. The Town of Hortonia does not have its own Internet webpage. The Town should consider
creating a webpage to provide names and contact information for elected officials and committee
members. Additional information such as agendas, meetings, ordinances and the Comprehensive Plan
could also be posted on the website. The 2003 Town survey results also indicate an interest for
Internet access to Town information.
With respect to Internet access, Charter Communications offers broadband cable modem service for
residential Internet access along STH 15. High speed Internet is not available in other parts of the
Town, but dial-up modem access is available from several providers.
•
Newspapers. Although the Town of
Hortonia does not have its own newspaper,
several area newspapers distributed in nearby
communities including Appleton Post
Crescent, The Post Crescent West and the
New London Press Star serve residents. .
•
Television and Radio. There are no television or radio stations located in Hortonia, but strong
signals are available from surrounding communities. Charter Communications offers cable packages
for Town residents located along STH 15. Some residents have also purchased satellites to receive
additional channels. Television and radio coverage is expected to continue to meet resident needs
over the life of this plan.
•
Postal Service. The Town of Hortonia does not have its own postal zip code. The nearest post offices
are located in Hortonville, New London, Readfield and Dale.
•
Cellular/PCS Towers. Ever advancing communication technologies have greatly increased the need
for towers to provide receiving and sending capabilities. The federal government formally recognized
this need by the passage of the Federal Telecommunications Act of 1996. Under Section 704 of the
Act, the Town has the power to regulate the placement, construction and modification of personal
wireless facilities, as long as the rules do not unreasonably discriminate between providers or prohibit
service.
At present, there is one tower located in the Town. It is located on STH 15 at the Carew Concrete
Plant. The company uses this tower for radio dispatch of their trucks and employees. This tower is not
used for cellular purposes and is actually an old radio tower.
6-8
Any requests for tower facilities will require approval under the Town of Hortonia Zoning
Code. There are no applications pending for additional towers.
It is anticipated that in the next 5-10 years that the primary coverage area for wireless service in the
Town of Hortonia will be adjacent to STH 15 and STH 45. Beyond that timeframe, cellular coverage
demand around the cities of New London and Hortonville may also increase.
CEMETERIES
There are no cemeteries located in the Town of Hortonia and there are no plans to establish any.
Residents of the Town can find burial sites in neighboring communities, including three cemeteries
located in the Village of Hortonville immediately adjacent to the Town.
HEALTHCARE FACILITIES
The nearest medical facility to the Town of Hortonia is the New London Family Medical Center, operated
by ThedaCare located at 1405 Mills Street in New London. The facility has 17 active staff physicians,
more than 50 physician consultants and 250 employed staff. The 25-bed community hospital provides
general medical care including 24-hour emergency care, inpatient/outpatient surgery, rehabilitation
services, diagnostic services including laboratory and imaging, pain management, birth center and
transitional care.
Affinity Medical Group Clinic, 1420 Algoma Street, also serves the Town of Hortonia. This clinic offers
specialty care physicians providing professional services including cardiology, dermatology, diabetes
education, obstetrics, orthopedics, psychology, pulmonology, urology, lab and x-ray services. The clinic
is open Monday through Friday, and part of Saturday. In addition to the ThedaCare and Affinity, many
hospitals and healthcare physicians also serve the Fox Cities. Various doctors and dentists maintain
private practices in the area.
At this time, there are no plans for expansion construction of a new healthcare facility in Hortonia.
Existing providers are expected to meet Town needs through 2025 and beyond. If additional medical
facilities should locate in areas of the Town, they should be directed to those areas identified on the
Future Land Use Maps that are allocated for commercial uses in proximity to important roadways.
CHILDCARE FACILITIES
The Town of Hortonia itself lacks childcare facilities. Residents currently look to neighboring
communities such as New London (e.g Kids First Group Center Inc., Day Care Center of New London,
Inc.), Dale (i.e. Come Unto Me Child Care), and Greenville (i.e. Sunshine Day Care) for these
establishments. Parents that work in the Fox Cities and drop off/pick up their children on the way to/from
work have a large range of possibilities to choose from in the area spanning from Oshkosh-Kaukauna.
6-9
LIBRARY
There are two public libraries for residents located in New
London and Hortonville. The New London Public Library has a
wide variety of materials and programs available to residents.
Programs range from child storytelling to a monthly book
discussion. In 2003, the New London Library had 141,373
books in circulation, more than 2,800 audio materials, more
than 2,600 video materials and 244,7986 cardholders. The
library also has an Internet-based catalog to allow for
convenient access to library resources from home.
The Hortonville Public Library also offers many public programs and community outreach events. These
programs range from storytelling for children to quarterly newsletters and discussion groups for adults. In
2003, the library had almost 74,000 books in circulation, 925 audio materials owned, 1,778 video
materials owned with 3,147 library cardholders. The website, which includes the Internet-based card
catalog, recorded 45,657 hits in 2004.
Outagamie County is a partner in OWLS (Outagamie Waupaca Library System). Therefore, Town
residents may check out materials from all Outagamie County, Waupaca County and the Oneida
Community Library. Libraries located in Outagamie County are found in Appleton, Kaukauna, Black
Creek, Kimberly, Little Chute, Hortonville, Seymour, Shiocton and New London.
There are no plans to establish a library in the Town of Hortonia. According to the OWLS Plan, existing
municipal libraries provide adequate services to Outagamie County residents and Outagamie County does
not need to provide any additional library services. Given resident access to resources via the web
catalogue and the interlibrary loan program, in addition to the Internet, it is anticipated that library
services will be adequate to meet future demands for the next 20 years and beyond.
SENIOR SERVICES
The 2000 U.S. Census reported that 94 people (8.8%) in the Town of Hortonia were age 65 or over. Like
youth populations, seniors also demand particular services to meet their specific needs.
To address senior needs, the Outagamie County Department of Health and Human Services provides
seniors with access to information, services and programs to support physical, emotional, social and
financial well-being. Services and programs include companion, legal guardian, pen pal, transportation,
home delivered meals (i.e. meals-on-wheels), benefit counseling, and home maintenance assistance to
name a few. Services provided by the Outagamie County Department of Health and Human Services and
supporting organizations are profiled in a booklet available on-line at: http://www.co.outagamie.wi.us/.
6
SOURCE: http://www.dpi.state.wi.us/dpi/dltcl/pld/xls/03publib.xls
6-10
SCHOOL DISTRICT FACILITIES7
The Town of Hortonia is served by two school districts, New London and Hortonville. The majority of
Hortonia is located in the Hortonville School District. There are no public school facilities within
Hortonia’s boundaries, and at this time neither district has plans to construct any facilities in the Town.
To understand the quality of the education offered in these two districts, a brief look at standardized tests
scores is provided here. Students in the New London and Hortonville School Districts take standardized
tests in the 4th, 8th, and 10th grades. The Wisconsin Knowledge and Concepts Examinations (WKCE)
are administered in schools across the state (with similar tests in other states) to assess student
achievement. Test topics include reading, language arts, mathematics, science and social studies. Both the
New London and Hortonville School District test scores rate as slightly above State and Federal
Standards. In comparing the two districts to one another:
•
Test scores for the districts are nearly identical for 10th grade reading, with Hortonville having
slightly higher 4th grade reading scores and New London having a slightly higher 8th grade scores.
•
In language arts, Hortonville students reported results a few percentage points higher in 4th and 8th
grades than the New London district students. The 10th grade scores are nearly identical.
•
With respect to mathematics, Hortonville scored better in the 4th and 8th grades, while New London
had slightly higher scores in the 10th grade.
•
Test scores for science reveal Hortonville students score higher at all grade levels.
•
In social studies, New London reported better results at all test levels.
A brief profile of the New London and Hortonville School Districts is provided below.
New London School District.
The New London School District has six schools: Lincoln Elementary, Parkview Elementary,
Readfield Elementary, Sugar Bush Elementary, New London Middle School (6-8) and New
London High School (9-12). The student to staff ratios are low and have been steadily decreasing
over the last decade from high of 14.61:1 in the 1996-1997 school year to present levels of
13.32:1. Table 21 provides a historical
detail of the school district’s enrollment
over the last five years.
The New London School District
encompasses 144 square miles in three
counties with an approximate population of
18,000. The District employs over 350 full
and part-time individuals.
7
Wisconsin Department of Public Instruction. Data available: www.data.dpi.state.wi.us/data/selschool.asp.
6-11
Hortonville School District.
Students enrolled in the Hortonville School District attend school at
Hortonville Elementary School (K-4), Hortonville Middle School (5-8), and
Hortonville High School (9-12). The district has shown little change of the
years. The student to staff ratios have remained steady over the last decade
from 13.12:1 to the current level of 13.16 to 1.
This rural/suburban school system is located immediately to the north and west of Appleton. The
District operates five schools with elementary and middle schools on the Greenville campus and
elementary, middle and high schools on the Hortonville campus. The District is experiencing rapid
growth. In fact, in the last 10 years the District has seen annual growth rates of 100 students. Given
this situation, the District plans to study needs to expand existing facilities or possibly build a new
school. In the fall of 2005 a referendum passed allowing the District to purchase a parcel near the
YMCA facility in Greenville. Based on available census information, most of the new students in the
Hortonville Area School District are coming from the Town of Greenville. The District will not
consider building a school in the Town of Hortonia unless water and sewer is available. The
Hortonville School District has more than 250 teachers and many more additional support staff.
It is important to remember that the school districts serving the Town of Hortonia extend beyond the
Town. As a result, development in neighboring communities can impact the need for additional school
facilities and expansions. Of great concern to the Town of Hortonia is ensuring that the local school
districts are not overwhelmed by new development. Given that the school districts serve a rural area,
much of their financial support is derived from resident taxes. Major changes in facility and staff needs
can impact the Town’s taxpayers. Therefore, coordination with the school districts, with respect to the
development and implementation of this plan, is an important priority for the Town of Hortonia.
TABLE 21 SCHOOL DISTRICT ENROLLMENT TRENDS
NEW LONDON SCHOOL DISTRICT
HORTONVILLE SCHOOL DISTRICT
School
Year
2000-2001
2001-2002
2002-2003
2003-2004
2004-2005
Number of
Students
Change in Number
of Students
2512
2538
2557
2514
2515
32
26
19
(43)
1
School
Year
2000-2001
2001-2002
2002-2003
2003-2004
2004-2005
Number of
Students
Change in Number
of Students
2636
2764
2915
3003
3133
95
128
151
88
130
SOURCE: Wisconsin Department of Public Instruction
HIGHER EDUCATION
The Town of Hortonia has convenient highway access to many outstanding colleges, universities and
technical schools. Within an hour drive, residents can attend classes at Marian College, Lawrence
University, Moraine Park, Fox Valley Technical College, St. Norbert, Lakeland, Northeast Wisconsin
Technical College, and the University of Wisconsin campuses in Appleton, Fond du Lac, Green Bay,
Stevens Point and Oshkosh.
6-12
TOWN HALL
Hortonia’s Town Hall is located at the intersection CTH
T and Givens Road on less than one acre of land. This
facility is available to residents for meetings. The
Hortonia Town Hall is one of the oldest in Outagamie
County, built in 1896. The Wisconsin Historical Society
includes the Hortonia Town Hall as a Wisconsin
Historical site, and is included in the Wisconsin
Architecture and History Inventory (AHI). The AHI
indicated the site has NRHP, National Register of
Historical Places, potential under Criterion A. Criterion A
relates to a property’s historical significance, more associated with events that have made a significant
contribution to the broad patterns of history. The Hortonia Town Hall was originally a schoolhouse,
which makes the building significant for its association with the development of education in the local
community. Because of this, the Town Hall may qualify to be listed in the National Register of Historical
Places.
In 2000, new storage cabinets were added, along with new electrical wiring throughout the building. A
telephone was added in 2001, but the building still has no indoor plumbing or HVAC system. There is
little room for expansion because of the limited parcel space and the location of the building on the
parcel. It also is not practicable to expand the Hall because of costs and the historical character of the
building may be lost. The realignment of STH 15 may also impact the Town Hall and force the Town to
relocate the building or build new. If relocation is necessary, the Wisconsin Department of Transportation
will be responsible for the costs of moving the structure.
Given the limitations of the existing building, it would probably be easier and more cost effective to build
a new Hall with modern amenities. If a new Town Hall is constructed, the current facility could be
preserved and used for special meetings and as a museum showcasing Hortonia’s history. The Town is
actively looking for a new Town Hall space or a new hall location. Ideally, any new building will have
bathrooms, a conference room, storage space and an office for the Town Clerk. Records could be kept at
this building and the Clerk could have office hours. Additional information about this important topic is
provided in the Issues and Opportunities section of this chapter (page 18).
TOWN LANDFILL SITE
Abandoned for many years, the Town owns a landfill that was once used by residents. The “dump,” as it
is known locally, is situated on approximately three-acres one mile west of Hortonville on STH 15 in
Section 34. The Town submits semi-annual groundwater test samples to the DNR to monitor the site. No
impacts on groundwater have been reported around the landfill. The DNR will require a 1,000-foot
setback for any development around this property. The Town has no plans to use the site again as a
landfill. The Town is considering planting some trees on the landfill to reuse the site as a community
green space with the possible addition of some trails and benches.
6-13
Community Services Inventory
SOLID WASTE DISPOSAL AND RECYCLING
The Town contracts with an independent service provider for residential and institutional waste disposal
service and recycling. Garbage and recycling are collected curbside. Garbage is collected every Friday,
while recyclables are collected every 2nd and 4th Friday of each month.
At present, Hortonia contracts for this service with Graichen Sanitary Systems from New London. Unless
service quality or cost issues arise, the Town will continue use Graichen Sanitary Systems.
Another service offered by the Town is a free tire pickup day. This occurs in April and September of each
year. Residents are allowed to drop-off their used, unwanted tires at an individual’s house. The tires are
collected and properly disposed of. The Town plans to continue to offer this service to residents.
POLICE PROTECTION8
The Outagamie County Sheriff’s Department provides police protection services to the Town of Hortonia.
The Department headquarters is located at 320 S. Walnut Street in Appleton. Response times vary
depending on the location of the nearest cruiser, but generally 10 minutes for emergency calls and 14
minutes for non-emergencies.
The Outagamie County Sheriff’s Department has 73 sworn officers working in the Law Enforcement
Division as uninformed patrol, investigations and civil process. At any given time as many as 8, but no
fewer than 6, patrol cars are on duty. The number of officers on patrol duty varies by the time of day and
overlaps during shift changes. The Department serves approximately 167,000 residents of Outagamie
County. The Sheriff Department patrols the County in four sections, divided by STH 47 and CTH S.
Officers are assigned to each section and patrol those areas. The Town of Hortonia is located in section 3,
along with Dale, Ellington, Center and Greenville.
The Outagamie County Sheriff’s Department provides 911 emergency-based dispatching for nearly all
police services in the entire County, including the City of Appleton and most other city and village
departments. The Outagamie County Sheriff’s Department also dispatches for a majority of the fire
departments in County. In 2004, the Town of Hortonia had 566 emergency and non-emergency calls to
the Sheriff Department, accounting for 8% of the total calls in Section 3.
In providing protection to the Town of Hortonia, the Outagamie County Sheriff Department may utilize
backup assistance available through agreements with New London, Shiocton, and Hortonville.
The Outagamie County Sheriff Department has no plans to hire additional staff at this time. The current
staff size meets the needs for the County. The Department would like to maintain its level of staffing,
which it believes is adequate to provide needed protection to area residents. Decisions about future staff
expansion will be based on population increases, response times and the Outagamie County Board.
The Outagamie County Sheriff’s Department annually reviews equipment and vehicle needs as part of the
Outagamie County Capital Improvements Program. Regular vehicle replacement is important to ensure
that a dependable vehicle is available to respond to public safety needs. The Sheriff’s Department has a
“1-to-1” program in place which ensures that a squad car is only driven by 1 officer and kept at the home
8
Telephone interview with Captain Michael Jobe, Outagamie County Sheriff Dept, 7-19-05
6-14
of that office. That program results in a 3-year vehicle replacement schedule. Other available cruisers are
replaced annually based on mileage.
The Outagamie County Sheriff operates a jail facility at 320 S. Walnut Street in Appleton. The jail has a
capacity of 557 inmates, ranking 7th in Wisconsin for prisoner capacity. It is divided into several different
areas to separate juveniles from adults. Males and females are also separated within the jail. In addition,
the jail accommodates a work-release population who work 40-50 hours each week outside of the jail and
then return to the facility each night and weekend. In 2004, the average number of inmates housed in the
jail was 494.
In response to an increasing prison population, Outagamie County began using GPS, Global Positioning
Satellite, in 2001 to monitor inmates. Inmates serving their time as part of the Huber Law or work release
programs wear a tamper resistant ankle bracelet that monitors the inmate’s location. If an inmate enters an
area where he/she is not allowed, a warning is issued and the probation officer takes the appropriate
action to correct the problem. In 2004, GPS had a 91% success rate with an average daily population of
24.3 using the system.
FIRE PROTECTION
The Hortonville Hortonia Fire District provides fire protection for the Town.
The Insurance Services Office (ISO) rates fire protection service for communities across the United
States. The rating system scale is 1 out of 10, 1 being the best and 10 meaning the fire program does not
meet ISO standards. Most insurance underwriters utilize the assigned fire protection rating to calculate
residential, commercial and industrial insurance premiums. Fire districts are evaluated on a cyclical basis
that is determined by district growth and the size of the population served. The Hortonville Hortonia Fire
District was rated at a 6. This rating was completed in 2003. This higher rating reflects a quick response
time to the bulk of its population. Improving this rating probably would require employing at least some
full-time professional firefighters.
More information about the Hortonville Hortonia Fire District is provided below. 9
The Hortonville Hortonia Fire District serves the Town of Hortonia, Village of Hortonville and the
southeastern portion of the Town of Liberty. The volunteer fire district has a force of approximately 39
volunteer firefighters. The District has a fire agreement with New London, Town of Dale and Ellington
Fire Departments. The agreement states these 3 districts will assist the Hortonville Hortonia Fire District
in case of a major emergency. On a typical call the department is in route within 2-3 minutes of receiving
a 911 page.
The Hortonville Hortonia Fire District has a fleet of emergency vehicles including:
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•
•
2001 International Tanker-3,000 gallons
2000 Pierce Pumper-holds 8 firefighters.
1988 LPL 8,000 gal. Pumper with an open back able to carry 5 firefighters.
An 8x10 trailer containing blankets, fire gear, generator, and other equipment for firefighters.
Cascade trailer used for filling air bottles.
The Hortonville Hortonia Fire District also has a thermo-imaging camera (purchased in 1999), new air
bottles purchased in 2004 from and lightweight fire fighting gear used to fight wildland fires. In 2006, the
9
Telephone interview with Town Chairman Kevin Bolssen, July 13, 2005.
6-15
department received an $80,000 Homeland Security Grant to upgrade helmets, boots, jackets and other
equipment.
The current fire station is located in the Village of Hortonville on South Nash Street, next to the Police
Station. In 2008, a new station will be constructed at the corner of CTH TT and Birch St. Presently, there
are no formal plans describing what the new station will look like. But improvements will likely include a
larger building to allow easier access to equipment and vehicles, and better indoor facilities for
firefighters. In the future, the department would like to increase the number of volunteers from 39 to 42.
Also, the department would like to hire a full-time fire inspector. The District annual reviews its
equipment and staff to ensure they can adequately serve the community.
FIRST RESPONDERS10
First Responders provide initial medical assistance until an ambulance can reach the scene. First
responder service in the Town of Hortonia is provided by a group of 15 volunteers. Each first responder
carries basic medical supplies. The First Responders carry pagers and use their own personal vehicles for
each medical assistance call. There are currently 5 defibrillators shared among the 15 volunteers, but
plans are to add enough so every first responder can have one.
Response time for the First Responders vary by the time of day as many of the volunteers work out of the
area during the daytime hours. The longest response time frame is between 5-7 minutes. Any response
provided by the First Responders is free of charge. As a volunteer organization, their survival depends on
donations.
AMBULANCE SERVICE
Ambulance service for Hortonia is provided by the New London Family Medical Center, operated by
ThedaCare. The service is dispatched by the Outagamie County 911 Center/Sheriff Department and
provides 24-hour emergency response to the Town.
10
Telephone interview with First Responder Jason Bartlet, July 13, 2005.
6-16
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Utilities and Community Facilities Issues & Opportunities
During development of this plan, residents, landowners, and Plan Committee members had the
opportunity to raise issues and concerns about available utilities and community facilities. What follows
is a summary of these issues and concerns. Actions to address these items are provided in the Utilities &
Community Facilities goals and objectives section of the Implementation Chapter.
TOWN HALL
Many residents expressed concerns about the
adequacy/efficiency of the current Hortonia
Town Hall. Others felt the historic Hortonia
Town Hall is an asset to the community.
Currently, the Hall is sufficient for meetings
and other Town related events. However, in
the future the Town will need to consider the
construction of a new Town Hall to
accommodate the growing needs of the
community. With the realignment of STH 15
possibly affecting the Town Hall, citizens
need to begin to think about what options are
available. To consider possible design
Liberty Town Hall: Example of a Town Hall design/layout that is
recommendations and remodeling ideas, a
desirable in the Town of Hortonia. Any new Hortonia Town Hall design
facilities assessment is recommended. A
should reflect the historic character and charm of the current Town
facilities assessment will inventory existing
Hall (i.e. use of bead board in interior, similar roof pitch, similar
window styles, double door, etc.)
space utilization and needs to consider
opportunities for improvements to the Hall.
Improvements can be related to office layouts, storage spaces, kitchen space, etc. The facilities
assessment will provide specific ideas and designs based on what the community would like to see in a
new Hall and how the current space can be used.
Four possible areas for a new Town Hall are identified on the Utilities and Community Facilities Map.
These locations were selected with the idea that the new Hall site will accommodate a community park of
at least 2 acres and that the current Town Hall which will become a history museum and special meeting
space. Each of the identified sites is centrally located in the community near residential development
areas to offer easy access to the proposed park facilities for Town residents. The sites along CTH TT are
located along the proposed Outagamie County Greenway Trail System. The site along CTH T was
identified because this property is home to the Knowledge Hill School and a historic log home (refer to
Chapter 7 for more information) that could relate well to the historic Town Hall as a site that clusters
together three significant historic buildings in the Town. All locations identified also provide park users
convenient access to bicycle routes and the WIOUWASH Trail.
FIRE HALL FACILITIES
During the SWOT exercise, residents felt the existing fire station was a weakness. A new Fire Station will
be constructed in 2008, providing more space and expansion for the Fire District. The Town will work
with the Fire District to ensure the design and layout will satisfy the Town’s needs. The Town will also
continue to work with the Fire District to make certain the Town is protected incase of an emergency.
6-18
GROUNDWATER QUALITY
There are increasing concerns about groundwater contamination of wells in the Town. As development
occurs, additional wells will be drilled to accommodate new houses, which increase the risks of existing
well contamination. The WDNR and UW-Extension work with well drillers to protect groundwater
quality by enforcing drilling depth requirements. The Outagamie Land Conservation Department also
assists property owners with conservation techniques to protect water quality.
LIMITED HIGH-SPEED INTERNET
As identified in the SWOT Exercises, some residents are concerned about lack of high-speed Internet
access in the community. Residents not living along STH 15, can only use dial-up Internet connections or
satellite dish service. These two options are not considered “high-speed.” One of the better options
available today is cable Internet access. It is quite fast, but has high costs related to the extension of cable
service into parts of the Town not currently served. The approximate cost to expand cable coverage is
$100 per foot of cable. Charter Communications will sometimes reduce this cost when many homes are
singing contracts, but the cost will still be great.
Unfortunately, there is no perfect solution for adding Internet infrastructure in the Town. The quickest
solution is to make wireless Internet service available by constructing a tower in a field or on top of a
building. Such a tower could provide the majority of the Town with high-speed access. An individual or
company could provide this service. Another option is for the Town is to encourage technology updates
when new subdivisions are created. The Town can encourage developers to extend technological services,
such as cable, to new subdivisions.
Given how rapid computer technology develops and changes, it is difficult to predict what will be
available in the future. Nevertheless, the Town will support technology that increases the ease of
communication.
SCHOOL COSTS
As part of the SWOT Exercise, some residents indicated that school costs in the area were a threat to the
future of Hortonia, while other residents felt the school system is a strength of the community and
expressed no specific cost concerns. The Town should continue to work with the New London and
Hortonville School Districts to ensure school costs remain reasonable to the citizens of Hortonia, without
sacrificing quality. This issue will be addressed more in the Intergovernmental Cooperation Chapter.
6-19
Utilities and Community Facilities Programs
Hortonia is always open to considering opportunities available to finance needed utilities and community
facilities. There are numerous grant and loan programs that the Town may seek to help finance future
improvements. Programs are available through the State of Wisconsin and the federal government:
WATER AND WASTEWATER GRANT AND LOAN PROGRAM
The USDA Rural Development (Rural Utility Service) has a water and wastewater grant and loan
program to assist cities, villages, tribes, sanitary districts, and towns in rural areas with a population up to
10,000. The program provides loans and grants to construct, improve, or modify municipal drinking water
and wastewater systems, storm sewers, and solid waste disposal facilities. This program may be useful for
establishing shared/cluster sanitary and water systems in Hortonia.
STATE TRUST FUND LOAN PROGRAM
The Board of Commissioners of Public Lands provides this loan program with terms of up to 20 years
and deeply discounted interest rates. Loans may be used for a variety of purposes including: road
improvements, community centers/halls, trail development, and property acquisition. The funds available
fluctuate annually. The current annual loan limit is $3,000,000. The Town of Hortonia could utilize these
funds for development of new park facilities, trails, road projects (including projects to pave shoulders for
trail routes), and the development of a new Town Hall.
RURAL DEVELOPMENT COMMUNITY FACILITY GRANTS
The USDA Rural Development also offers grants to communities seeking to build or improve their
community buildings (i.e. halls, libraries, community center, and fire departments). These grants are
awarded to communities with a population up to 10,000 based on a competitive application process.
FIRE ADMINISTRATION GRANTS
The Federal Emergency Management Administration (FEMA) offers over $100,000,000 in annual grant
awards to fire departments in six specific areas: training, fitness programs, vehicles, firefighting
equipment, and fire prevention programs. Applicants from communities, which serve a population of less
than 50,000, must provide a 10% match.
STATE STEWARDSHIP FUND
The Stewardship Fund is the State of Wisconsin’s land acquisition program for public outdoor recreation
and habitat protection. Administered by the Department of Natural Resources, the fund makes millions of
dollars a year available to buy land for parks, trails, habitat areas, hunting grounds, and local parks and for
site improvements, like trails and campgrounds. Hortonia could use these funds to establish local trails,
preserve the existing Town Hall building or establish a new park.
6-20
A TOWN CAPITAL IMPROVEMENTS PROGRAM
A Capital Improvements Program (CIP) is a five to six year short-range plan with updates occurring
annually. Very basically it is a tool to plan for those “big ticket” items needed in the community so the
Town is not surprised by expenses and can safe for major purchases over a longer period. A general CIP
includes a community’s capital items such as:
•
•
•
Park acquisition and improvements
Trail development projects
Public buildings improvements and
maintenance
•
•
•
Emergency vehicle or road maintenance
vehicle purchase and replacement
Street maintenance and reconstruction
Replacement of aged sanitary sewer and
water mains
Capital items are generally defined as those items that are expensive (cost $5,000 or more) and will
last at least 3-5 years. The CIP also includes improvement projects required for the community’s
future and the appropriate timeline and funding to be followed to implement the improvements.
The Town of Hortonia currently uses a CIP to plan for transportation improvements. To more
effectively implement this plan, as well as other community objectives, the Town should consider
using a CIP approach to plan for other future expenditures, thereby linking planning to the annual
budgetary process.
Utilities and community facilities can impact future planning for a community if capacity, location,
and services are not adequate to support development. Therefore, it is important to inventory existing
utilities and community facilities and understand how utilities and community facilities will be
provided over the planning period. Furthermore, utilities and community facilities have a direct
impact on the other chapters of the comprehensive plan. In particular, the Housing, Economic
Development, Land Use, and Intergovernmental Cooperation Chapters are most directly impacted by
utilities and community facilities.
HOUSING
Improvements such as roads, sewer, water, parks, recreational facilities, and schools all need to be
coordinated with the housing decisions and vice versa. The recommended method to coordinate
improvements is to follow the land use pattern presented on the Future Land Use Maps as closely as
possible and plan for future improvements in a Capital Improvement Plan and Budget.
The availability of utilities and community facilities like electricity, police protection and
communications services are important to economic development. This infrastructure is needed to
support local business and economic development. The goals and objectives of this chapter (found in
the Utilities and Community Facilities section of Chapter 12) seek to maintain and improve local
utilities and community facilities to improve economic development opportunities in the Town.
6-21
LAND USE CHAPTER
Development brings people to a community, creating the need for utilities and community facilities.
On the other hand, the availability of utilities and community facilities can determine where
development will occur. The Future Land Use Maps were developed after careful consideration of
where utilities and community facilities are now available, or will be available, within the planning
period. In addition, the Future Land Use Maps carefully consider the economic feasibility of utilities
and community facility extensions to serve areas planned for future development. Areas where
sanitary systems, communication services, or power supplies are cost prohibitive are not encouraged
for future residential, commercial or industrial development.
The Town does participate in coordinated efforts to provide efficient services. The Fire District and
agreements with the City of New London are primary examples of these efforts. The goals and
objectives included in the Implementation Chapter support continued coordination to efficiently
provide needed utilities and community facilities to the Town.
The policies, goals and objectives for the Utilities and Community Facilities can be found in the
Implementation Chapter (Chapter 12).
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7.0
AGRICULTURAL, NATURAL & CULTURAL RESOURCES
Introduction
To learn more, also see…
Wisconsin’s Comprehensive Planning Law includes 14 goals
for local comprehensive planning. Of those, the Town of
Hortonia believes that the goals listed below specifically relate
to local planning for agricultural and natural resources:
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•
•
•
Protection of natural areas, including wetlands, wildlife
habitats, lakes, woodlands, open spaces and environmental
corridors.
Protection of economically productive agricultural areas.
Protection of agricultural lands for agricultural purposes.
During the Kick-Off Meeting held on February 22,
2005, residents indicated they value Hortonia’s
interesting natural areas, including the limestone
ledge and the Wolf River. More importantly,
residents indicated that retaining natural features
and rural character is critical to maintaining quality
of living in the Town of Hortonia. To do this, it is
not enough to simply maintain undevelopable areas
and farmland. Areas that are developed need to be
sensitive to their rural setting. This chapter
provides an inventory of existing natural,
agricultural and cultural resources along with a
vision for 2025.
•
•
The Utilities and Community Facilities
Chapter for information about
innovative waste treatment options
and drinking water.
The Housing Chapter for information
about conservation subdivisions.
The Future Land Use Chapter to
understand how the natural resource
information from this chapter influences
planned future land use.
Portion of the Wall Graphic created March 31, 2005,
at the Town of Hortonia Vision Meeting.
Agricultural, Natural & Cultural Resources Vision
In 2025, the protection of natural resources plays a central role in growth and development
decisions so that Hortonia’s rural character and quality of life is maintained. Primary agricultural
areas, woodlands, wetlands, the Wolf River, and other natural features are protected from
development pressure to the greatest extent feasible. These landscape features define Hortonia’s
rural character, offer recreational opportunities and provide vital wildlife habitat.
Residents enjoy access to the many natural areas in the Town via a network of local and county
trails. Boating, fishing, and hunting are common recreational pursuits. The panoramic vistas
throughout the Town offer views of Mosquito Hill, farm fields, and a variety of other natural, open
spaces that are valued by residents.
Maintenance of historic buildings including the Town Hall, Knowledge Hill School, and several
historic farmhouses enrich the lives of residents by providing a visual connection to the past.
In 2025, Hortonia’s family farming operations have adapted to the changing market. Farmers have
turned to organic farming, niche farming, and value-added operations (e.g. pick-your own
produce, farmers markets / roadside stands, bed-and-breakfasts, horse stables, etc.) to improve
their profitability and successfully sustain Hortonia’s small, family farms.
Town of Hortonia Comprehensive Plan - Agricultural, Natural & Cultural Resources Chapter
7-1
Agricultural Resources 1
Agriculture has an important impact on land use in
Hortonia. It accounts for about a third of the total land
cover. Residents value local farming operations as the
history of the Town is closely connected to agriculture.
However, farm activity has been decreasing in Hortonia. In
fact, according to the U.S. Census data presented in the
Community Profile Chapter, only 3% of Hortonia’s
residents classified their primary employment as farming in
2000.
Hay Field, Town of Hortonia, WI
Despite declines in agricultural acreage, agriculture is an
important component of the Outagamie County economy. Included below are some selected highlights
from the 2002 Census of Agriculture for Outagamie County:
•
•
•
•
•
•
•
•
•
•
There are 1,430 farms on 263,485 acres (average farm size is 184 acres). The average farm size is
below the state average of 204 acres.
The estimated value of land and buildings per farm is $570,840, compared to a state average of
$464,127.
The market value of agricultural products sold is on average $102,431 per farm, which is significantly
higher than the state average of $72,906.
Countywide crop sales account for $31,732,000 of total value, while livestock, poultry and their
products account for $114,743,000 of total value.
There are 86,716 head of cattle and calves located on 674 farms in the County. Additionally, there are
1,703 beef cows on 132 farms and 38,000 milk cows on 334 farms.
Outagamie County ranks as the ninth highest county in the state for the number of milk cows and
milk production.
There are 12,020 hogs and pigs located on 36 farms, 991 chicken layers on 39 farms and 3,480
broilers and other meat-type chickens on 17 farms.
Out of the 3,824 acres of cabbage grown for processing in the state, 2,607 acres are located in
Outagamie County (68%).
There are 188,303 acres of harvested cropland spread across 1,014 farms in the County led by corn
for grain (55,841 acres on 549 farms) and corn for silage (23,864 acres on 399 farms). Other
significant crops in the County include, soybeans (42,514 acres) and forage (52,207 acres).
Total income from farm-related sources (before taxes and expenses) was $3,520,000 for the County.
These statistics demonstrate that agriculture is a necessary component of the Outagamie County economy
and the protection of farmland is critical. It is a valuable resource. It is also a nonrenewable resource.
Additionally, agricultural lands provide a significant amount of revenue to the area, while requiring very
few services. As development pressures increase in the rural portions of the County, like Hortonia, so do
the potential for negative impacts on agriculture. Non-farm residents can increase the chance of nuisance
complaints. Commuters need to share roads with slow moving farm equipment. Neighbors of farming
operations may be subjected to the common practices of manure spreading, night plowing and pesticide
applications.
1
Outagamie County Agricultural, Natural and Cultural Resource Summary, May 2005, was a reference source for
information provided in this section.
7-2
If the trend of rural development is to continue, steps need
to be taken to ensure that is does not continue to consume
prime farmland. The development needs to be directed
toward areas where its impact on agriculture is
minimized. One way of addressing that is to map prime
agricultural soils in Outagamie County. The relationship
between soils and agriculture is critical. While urban
development can utilize advanced technology to
overcome many soil limitations, it is not often the case
with regards to agriculture. That is the reason for
protecting prime soils for agriculture.
Sunset in the Town of Hortonia, WI
Productive farm soils are illustrated on the Agricultural
Suitability Map. Prime farmlands (productive agricultural
areas) are determined by soil types that are capable of producing high yields of crops under a high level of
management. Productive soils are considered to be those soils that are capable of producing an average of
4 tons per acre per year of grass-legume hay, or 100 bushels per acre of corn. The United States
Department of Agriculture Soil Conservation Service considers a “high level of management” to include
provisions for adequate drainage, appropriate tillage, planting and seeding with high yielding varieties,
control of weeds, diseases, insects, optimum fertilizer application and timely, efficient harvesting
techniques. Productive agricultural soils are found across Hortonia. While farming is encouraged across
the Town, a variety of factors combine to make Hortonia a likely target for future non-farm development.
These factors include:
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A projected Town population increase of 20% by the year 2025;
The desire for large-lot, rural residential development;
The increasing average age of local farm operators combined
with fewer young people interested in farming leading to sale of
farmland for development; and,
Strong demand for rural property from residents of the Fox
Cities and other urbanized areas.
To help ensure that farming remains a viable land use in Hortonia,
this Comprehensive Plan identifies primary areas for continued
agricultural use (refer to Chapter 10). If any development occurs in
these areas, the use of conservation subdivision techniques (refer to
Chapter 4) is recommended to preserve contiguous farmland
acreage.
A variety of tools are available to local governments and farmers to
preserve prime agricultural lands. These include Wisconsin’s
Farmland Preservation Program, various Natural Resource
Conservation Service programs, and the purchase or transfer of
development rights through groups like the Northeast Wisconsin
Land Trust, among others. Successful farmland preservation efforts
are dependant upon the support of local farmers and their ability to
pursue new markets to sustain operations over time. More
information about various strategies and programs to sustain
farming in Hortonia are provided later in this chapter.
Given the rolling landscape, the
community is not highly desirable for
large-scale farming operations (e.g.
Concentrated Animal Feeding
Operations or CAFOs). In fact, the
topography can be a challenging
environment for traditional, smaller
family farms. Moreover, the
scattered rural residential
development in Hortonia is largely
incompatible with CAFOs due to
conflicts over odors, traffic and
potential threats to groundwater
quality.
State regulations for siting CAFOs
are provided in the Wisconsin
Livestock Siting Law. For more
information and the complete text of
rules refer to the Wisconsin
Department of Agriculture, Trade
and Consumer Protection Web site:
WWW.DATCP.STATE.WI.US.
A summary of the law is provided
later in this chapter.
7-3
7-4
Lower Wolf River Bottomlands2
Before profiling the natural features found in Hortonia, it is
necessary to understand the regional context of Hortonia’s
natural resources. This is best understood by looking at the
Lower Wolf River Bottomlands.
LOCATION
The Lower Wolf River Bottomlands Natural Resource Area
(see map) includes 214,000 acres of land in portions of
Lower Wolf River Bottomlands
Shawano, Outagamie, Waupaca, and Winnebago Counties.
The northernmost portions of the Town of Hortonia are
within the Lower Wolf River Bottomlands Natural Resource Area. The Lower Wolf River Bottomlands
covers only a portion of the entire Wolf Basin. Currently, the WDNR owns 14 properties within the
Lower Wolf River Bottomlands Resource Area, including two (92.7 acres) in the Town of Hortonia.
WHY IS THE LOWER WOLF RIVER AREA IMPORTANT?
The Lower Wolf River Bottomlands is an ecologically important landscape between the urban areas and
agricultural communities of east central Wisconsin and the extensive forests of northern Wisconsin. The
area is predominantly open and rural with large wetlands and agricultural areas dominating the landscape.
There are several natural community types within the Lower Wolf River Bottomlands that are described
below.
TABLE 22
Natural Communities in the Lower Wolf River Bottomlands
Natural Community
Common Plants
Emergent Aquatic
Cattail-bulrush-bur-reed-arrowhead
Submergent Aquatic
Southern Sedge Meadow
Floodplain Forest
Pondweeds-wild celery-waterweed-water milfoil
Tussock sedge-Canada blue joint grass
Silver maple-green ash-swamp white oakcottonwood
Red maple-elms-ashes
Southern Hardwood
Swamp
Description
Open marsh, lake, and river communities with
permanent standing water
Deeper water community found in lakes and rivers
An open wetland community
A lowland hardwood forest along large rivers
A deciduous forested wetland community found in
areas with seasonally high water tables
SOURCE: Lower Wolf River Bottomlands Natural Resource Area Feasibility Study and EIS, March 2002
In addition to these natural communities, the Lower Wolf River Bottomlands is also home to several
aquatic communities that are important fish spawning habitats. In Hortonia, these aquatic habitats are
found in the Wolf River and adjacent wetland areas. Quality fishing opportunities are an asset in the
Town of Hortonia to be protected.
2
Information from this section was taken from the Lower Wolf River Bottomlands Natural Resource Area
Feasibility Study and Environmental Impact Statement developed by the WDNR, 2002. Copies of this report are
available on-line at: www.dnr.state.wi.us/master_planning/Wolf/index2.htm.
7-5
During the spring months, various species of fish from Lake
Winnebago make their way up into the Wolf River for
reproduction. This annual migration is different for each fish
species. During this annual “run,” thousands of anglers are
attracted to the region. Table 23 provides a chronology of the
spring fish run in the Wolf River.
Fisherman on the Wolf River
TABLE 23
Wolf River Fish Spawning
Fish Species
Northern Pike
Walleye
Lake Sturgeon
White Bass
Description of Spawning Habits
Northern Pike are the first to spawn. They migrate from the Wolf River into small
creeks and streams, warmed by the sun to spawn on marshes in the river’s floodplain.
The fish spawn on flooded vegetation and quickly return to the river.
Walleye migrate into old river bayous along the Wolf River’s floodplain. The
Winnebago strain of walleye prefers to use grass for spawning.
Lake sturgeon spawn when the water temperature reaches 55 degrees Fahrenheit.
The majority of these fish migrate up the Wolf River during the previous fall. They stay
in deep pools during the winter months waiting for spring. Once the water reaches the
proper temperature, rocky shoreline explodes with activity.
These fish run up the river and spawn in the brushy cover fringes of the main channel.
Upon conclusion of their spawning activities, these fish have a strong appetite. White
Bass are a favorite of anglers as they are easily caught and good for eating.
SOURCE: Lower Wolf River Bottomlands Natural Resource Area Feasibility Study and EIS, March 2002
LAND USES IN THE LOWER WOLF RIVER BOTTOMLANDS
Land uses throughout the Lower Wolf River Bottomlands are changing as demand for housing
development in the nearby population centers in the Fox Valley area increase. The location of the Lower
Wolf River Bottomlands, combined with the expansive range of habitats it offers, makes it very popular
for recreational activities - especially hunting and fishing. Uncontrolled development will eventually
fragment the unique habitat contained in this system, potentially causing declines in important wildlife
and fish populations and a decrease in recreational opportunities. Likewise, severe changes in the area
would impact the rural character of the Town of Hortonia.
More than a quarter of all land in the Town of Hortonia is classified as wetland (28.8%). Another 5.8% is
forested.3 The remaining areas include farmland, homes and limited commercial areas. This plan is being
developed to maintain the balance of land uses in the Town, retain Hortonia’s rural/agricultural character,
and preserve wildlife habitat.
3
2002 Land Use Data from the UW-Madison Program on Agricultural Technology Studies
7-6
FEASIBILITY STUDY & ENVIRONMENTAL IMPACT STATEMENT
In 2002, the WDNR completed a Feasibility Study and Environmental Impact Statement for The Lower
Wolf River Bottomlands Natural Resource Area. This report proposes that the WDNR, through
partnerships with local governments, conservation groups and others, to protect important natural
resources along the Wolf River Bottomlands. The WDNR has established a land acquisition goal of
45,000 additional acres outside of existing properties. (There is no timeline for this acquisition. Given
state budget limitations, it will likely take up to 50 years to achieve this goal). The focus is on
opportunities for land protection along the Lower Wolf River and Embarrass River and their important
floodplain forests and marshes. This goal will likely result in additional WDNR land acquisition in the
Town of Hortonia.
The WDNR goals for the Lower Wolf River Bottomlands Natural Resource Area are that:
1. The land along the Lower Wolf River Bottomlands is protected through ecologically sound
management decisions that reflect long-term considerations for healthy ecosystems.
2. The Lower Wolf River Bottomlands protects the quality and quantity of surface and groundwater
resources.
3. All citizens share the responsibility for stewardship of the natural resources in the Lower Wolf River
Bottomlands for the benefit of current and future generations.
4. The public has opportunities to experience a diverse range of compatible outdoor recreational and
educational activities that enhance the quality of life and economy within the Lower Wolf River
Bottomlands.
5. The Lower Wolf River Bottomlands provides opportunities to preserve agricultural land through
creative land management options.
IMPLICATIONS FOR THE TOWN OF HORTONIA
To achieve its goals for the Lower Wolf River Bottomlands in the Town of Hortonia, the WDNR will be
focusing on acquisition of lands along the Wolf River. The WDNR will contact landowners with property
along the Wolf River with respect to the preservation of the Lower Wolf River Bottomlands. Area
property owners would not be subjected to any new or additional regulations or restrictions on land use by
the WNDR. The DNR will only purchase from willing landowners and does not impose any restrictions
on those within or outside the boundary.
Through the WDNR efforts to protect the Lower Wolf River Bottomlands, the Town of Hortonia will
gain the following long-term benefits:
•
•
•
Preservation of important wetland habitats;
Maintenance of hunting and fishing opportunities; and,
Preservation of open, undeveloped areas that contribute to the Town’s rural character.
For any property acquired by the WDNR, the Town of Hortonia will receive annual “Payments in Lieu of
Taxes,” as required by State Statute. The amount of the payment is calculated in the same manner that
property taxes are derived at for a private landowner – the mill rate is multiplied by the assessed value of
the land, except the assessed value is considered the fair market value of the land. The initial assessed
value is set at the price the WDNR paid for the land, which is based on its appraised market value. The
value is adjusted annually to reflect changes in the assessed value. If the price of land goes up, the
“Payment in Lieu of Taxes” by the WDNR will also increase. This system ensures that the Town of
Hortonia will continue to receive revenue on properties that will not require services.
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Natural Resources and Environmental Concerns
The condition of the natural environmental is a key ingredient in Hortonia’s “quality of life” and the
strong sense of resident community pride. A correlation exists between the presence and prevalence of
open space and the positive feelings people have about their community. Woodlands, wetlands,
grasslands, and surface waters provide important wildlife habitat and recreational opportunities for
residents. They improve the visual appeal of the Town and function as development buffers, both within
the Town and neighboring communities.
In many respects, the natural landscape also determines where development can and cannot happen. For
example, topography limits the type and density of development that can occur. Certain soils types have
limitations that restrict development opportunities and shallow soils limit agricultural production.
Construction activities within wetlands and floodplains are regulated by local, state, and federal agencies.
Woodlands and grasslands, however, are afforded little state or federal protection. They, along with
agricultural lands, tend to experience the greatest amount of development pressure and, therefore, require
a greater level of local protection…at least for those communities intent upon preserving them. Based on
resident input provided at the Kick-Off and Vision Meetings, preservation of natural resources (wetlands,
surface and groundwater, woodlands, Wolf River) is an important priority in Hortonia. Local residents
value the benefits (e.g. stormwater control, water quality, air quality, wildlife habitat, aesthetics,
recreation, etc.) provided by a healthy and diverse natural environment.
This section of the chapter provides an assessment of the different natural resources in Hortonia. The
information is graphically represented on a Natural Resources Map. This natural resources information
serves as the basis for a land suitability analysis used to determined appropriate (e.g. environmentally
sustainable) areas for development on Future Land Use Maps.
GEOLOGY AND TOPOGRAPHY
Hortonia, like most of Wisconsin, owes its unique
landscape to the cumulative effects of past ice ages.
More than 95% of Wisconsin’s natural lakes and
many of its major rivers were formed during the last
glacial recession. The Wisconsin Glacial stage began
approximately 65,000 years ago. The ice that covered
most of Wisconsin was up to one mile thick and
extended in five sections (e.g. lobes): the Superior,
Chippewa, Wisconsin Valley, Green Bay, and Lake
Michigan. The Green Bay lobe extended along the
eastern part of the state carving out Green Bay, the
Fox River, and Lake Winnebago and reaching as far
south as Madison. As these lobes receded, they left
glacial lakes in their path. The last glacier in
Wisconsin began receding about 11,000 years ago.
Natural ledge as seen from Ledge Hill Road in
Section 29 in the Town of Hortonia.
The ledge was described by residents as a valued natural
resource during the Vision Exercise.
After the recession of the glaciers, Hortonia was left with its current topography. Topography is a general
term for the rise and fall of land. Topographic features include hills, valleys, ridges and plains.
Topography is important because it influences drainage patterns and to a large degree, the type and
intensity of land use. For example, some lands are so steeply sloped that they are only suitable for open
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space preservation or very low-density residential development. The topography in the Town of Hortonia
is characterized by rolling hills, plain meadows, lush and forested wetlands, and the Wolf River corridor.
Under the land surface is sedimentary rocks. The Cambrian Period sandstones found in the Town of
Hortonia represent the oldest rock unit in the region. The sedimentary rocks get progressively younger,
including limestone and sandstone. A limestone ledge on the western side of Hortonia is a valued local
geologic resource.
LAKES, RIVERS, STREAMS AND WATERSHED DRAINAGE AREAS
Surface water resources are extremely valuable assets to a
WHAT IS A WATERSHED?
community because of their potential environmental and
The area drained by a river. Several
economic benefits. Water-based recreational activities and
watersheds will make up a basin.
appropriately designed residential development that
capitalizes on surface water amenities can have lasting impact on the local economy. Appropriate location
and management of residential uses near surface water features is extremely important because of
potential threats to water quality. Residential development’s threats to surface water resources include
lawn-applied chemicals, petroleum-based substances and salts from local road runoff.
Significant water resources in the Town of Hortonia include the Wolf River, Black Otter Creek, and
Black Otter Lake – the only lake in Outagamie County.
Black Otter Creek is an intermittent stream, becoming a perennial stream at a point approximately one
and half miles upstream of Black Otter Lake. Nutrients and sediments carried by the creek from nearby
farm operations contribute to the eutrophication of Black Otter Lake. Wetlands border the creek in many
places.
Black Otter Lake is a 75-acre impoundment created in
1848 to form a millpond for the newly founded
community of Hortonville. The southeastern portion of
the lake is located within the Town of Hortonia. The
lake is primarily bordered by residential and
conservancy uses and there are two public access
points. The average depth of the lake is 9 feet. The
Village of Hortonville’s Black Otter Lake Protection
and Rehabilitation District has taken primary
responsibility for the lake’s conservation, management
and planning since 1976. Sedimentation, invasive
milfoil, and water-quality issues are recurring concerns,
and the District has the power to levy taxes in order to
support efforts to address these matters.
The basin of the Black Otter Lake Watershed is
comprised of 10,043 acres of predominantly
agricultural land. It is part of the Wolf River/New
London and Bear Creek Watershed, which drains an
area of approximately 14 square miles. The Wolf
River/New London and Bear Creek Watershed
encompasses the vast majority of the Town of Hortonia. The Wolf River/New London and Bear Creek
Watershed is part of the much larger Wolf River Basin, which drains 3,690 square miles. The Wolf River
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forms the northern boundary of the Town of Hortonia on its path to meet the Upper Fox River just above
the Lake Winnebago Pools System.
The portion of the Wolf River that flows across Hortonia moves sluggishly through a series of tight
curves set in a broad field of wetlands and floodplains. This river offers notable spawning grounds for
walleye and provides the area with habitats for a rich diversity of other wildlife. The river is central to the
region’s substantial tourism industry, providing plentiful opportunities for fishing, boating, and hunting.
SHORELINES
The natural qualities of Hortonia’s water
resources are important for environmental,
economic, and cultural reasons. These
resources provide habitat for fish and wildlife,
natural beauty and serenity, and opportunities
for outdoor recreation.
Shorelines are often thought of as a boundary
between the land and water, but shorelines are
also a transition area within which the health of
land and water ecosystems can be positively or
negatively affected. Shoreland vegetation traps
and filters sediment and debris from rainfall
and snow melt.
Natural Areas around Black Otter Lake Shoreline
Shorelines, riverbanks, and floodplains in Hortonia are protected and regulated by the WDNR and
Outagamie County. Shoreland zoning regulations are enforced by Outagamie County and are designed for
efficient use, conservation, development, and protection of water resources. They are intended to:
•
•
•
•
Prevent and control water pollution;
Protect spawning ground for fish and aquatic life;
Control building sites, placement of structures, and land use; and,
Preserve shore cover and natural beauty.
WETLANDS & FLOODPLAINS
Wetlands act as a natural filtering system for sediment and nutrients such as phosphorus and nitrates.
They also serve as a natural buffer, protecting shorelines and stream banks from erosion. Wetlands are
essential in providing wildlife habitat, flood control, and groundwater recharge.
At the state level, the WDNR regulates the placement of structures and other alterations below the
ordinary high water mark of any navigable lake or stream. The Army Corps of Engineers has federal
authority when fill is placed in any wetland 5 acres or greater in size.
In the Town of Hortonia, wetlands are found along portions the Wolf River and Black Otter Creek.
Approximately 28.8% of the Town is classified as wetlands.4
4
1997 land cover data from the UW-Madison Program on Agricultural and Technology Studies
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Floodplains, like wetlands, serve many important functions related to flood and erosion control, water
quality, groundwater recharge and fish and wildlife habitats. Areas susceptible to flooding are considered
unsuitable for development because of risks to lives and property. The Flood Insurance Rate Map
identifies areas along the Wolf River and Black Otter Creek as areas subject to flooding.
Outagamie County enforces a floodplain ordinance requiring certain land use controls in designated flood
hazard areas, which makes residents eligible to participate in the Federal Flood Insurance Administrative
Flood Insurance Program. This program requires all structures, which are to be constructed or purchased
in designated flood hazard areas utilizing loans from federally ensured banks to be ensured by a flood
insurance policy.
Regulations place limitations on the development and use of wetlands and floodplains. Under Sections
87.3 and 144.26 of the Wisconsin Statutes, a municipality has the authority to give greater protection to
wetlands, shoreland and floodplain areas. An opportunity exists to refine the Hortonia Zoning Ordinance
to more effectively protect local wetland areas.
WOODLANDS
The first record of vegetation in
Wisconsin occurred in the 1800’s,
when the U.S. General Land Office
competed a land survey of the entire
state. In the Town of Hortonia, the
native vegetation was composed
primarily of deciduous forest (sugar
maple, basswood, elm, yellow birch).
During the last half of the nineteenth
century much pre-settlement forestland
was cut and cleared for agriculture.
The Town of Hortonia Natural
Features Map, as well as the Current
Land Use Map (presented in the
Current Land Use Chapter) delineate
the location of woodland areas,
including wooded wetlands. To protect
woodlands, the WDNR Managed
Forest Program is available to
landowners who own more than 10
acres of contiguous forestland.
Through the program, landowners
agree to manage their forestland for
SOURCE: http://www.uwex.edu/wgnhs/earlyv.htm
hunting, fishing, wildlife, and
recreation purposes and not permit development in exchange for tax credits. Additional information about
this program is available on the Internet at www.dnr.state.wi.us/org/land/forestry.
Local efforts to protect woodlands are limited at this time. The Hortonia Zoning Ordinance could be
revised to more specifically protect valued woodland resources. For example, a Critical Areas Overlay
District could be developed that would apply special requirements to wooded areas. Such a district could
be used to restrict clear cutting of trees and limit tree removal to the clearing of trees for building
footprints, driveways and onsite sewage disposal systems.
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WILDLIFE HABITATS
To protect wildlife from encroachment, detailed sitespecific wildlife habitat information collected by the
WDNR is not available to the public. However, a number
of resources do provide general information about habitats
in the area. Specifically, the Wolf River Basin Biotic
Inventory and Analysis, as well as the Lower Wolf River
Sand Hill Cranes at Partika Farm
Bottomlands Feasibility Study produced by the WDNR are
Givens Road - Hortonia, WI
important resources for understanding wildlife habitats in
and around Hortonia. The Shakey Lake and the Hortonville Bog State Natural Areas located in the Town
of Liberty and Town of Dale (just beyond Hortonia) are particularly unique wildlife habitat areas profiled
in these reports.
Primary wildlife habitat areas in Hortonia correspond to
Habitat Fragmentation
the environmental corridors shown on the Natural
Features Map. These areas provide food and cover for
A primary threat to wildlife is fragmentation -- the
deer, raccoons, skunk and other small animals common
breaking up of larger habitat areas into smaller
in the area. Nearby farm fields also serve as a food
sections. This results from modification or conversion
source for deer, sandhill cranes, turkeys and waterfowl.
of the landscape due to development or agricultural
Farmland is also very important to wildlife because it
operations.
provides travel corridors between waterways and
woodlands. Farmland also provides cover opportunities
Fragmentation decreases wildlife population sizes,
isolates habitat areas and creates more edges – where
and large contiguous open spaces needed by wildlife.
two dissimilar habitats meet (e.g. grassland and
The Wolf River and adjacent marshes have been
residential subdivisions).
identified by Nature Conservancy to important bird
areas for sedge wrens.
Carefully planned environmental corridors provide
opportunities to reconnect fragmented natural areas
and improve habitat for important plant, animal and
insect species.
Aquatic habitats in Hortonia include Otter Lake, Otter
Creek, and the Wolf River. The quality of these water
resources as aquatic habitats was discussed in earlier
sections of this chapter. For additional information
about wildlife habitats associated with the Wolf River Corridor refer to the following:
http://www.dnr.state.wi.us/org/land/er/nhi/projects/wolf/.
ENVIRONMENTAL CORRIDORS
Environmental corridors connect natural areas and open spaces.
They provide physical linkages between fragmented habitat
areas and, as such, provide animals and insects a means of
travel to and from feeding and breeding places. Fish and
wildlife populations, native plant distribution, and even clean
water all depend upon movement through environmental
corridors. Most native species decline when habitat areas are
fragmented due to agricultural operations or residential and
commercial development. Wildlife populations isolated in one
location, like a stand of trees or a secluded wetland, can
overpopulate or die out without adequate environmental
corridors allowing unimpeded movement.
The functional effectiveness of an environmental corridor
depends on the type of species that use it, its size, shape, and its
Environmental Corridors:
Nature’s Hallways
One way to think of environmental corridors is to
compare them to hallways. A building contains
hallways, which are places of concentrated
movement back and forth; and rooms, which are
destination points where people eat, work, play,
and sleep. The hallways serve to link places of
activity. Just as hallways enhance the operation of
a building, environmental corridors increase the
value of natural resource areas. Areas of
concentrated natural resource activity (“rooms”),
such as wetlands, woodlands, prairies, lakes, and
other features, become more functional when linked
by environmental corridors (“hallways”).
SOURCE: Environmental Corridors: Lifelines for
Living; University of Illinois Extension; Fact Sheet Series,
2001-013.
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edge effects.5 Larger corridors offer greater habitat diversity. Linear corridors tend to be less diverse but
offer important migration routes. In suburban environments, corridors often lie along stream and
riverbanks. More than 70% of all terrestrial wildlife species use riparian corridors. In farming areas,
fencerows provide important habitat links for songbirds and other wildlife. Historically, fencerows were
used to mark-off ownership of farm fields. Stones and stumps cleared from cultivated areas were laid
along property lines or to separate “forty’s.” During the 1920’s the federal government advocated treelined fencerows as a means of reducing topsoil loss. Nation-wide, farmers planted tree fence lines to
reduce wind erosion. Over time, these fencerows matured and provided new habitat for plants and
animals. As farmland is developed, these important areas for wildlife habitat are lost.
In Hortonia, the Wolf River is the primary environmental corridor through the Town. Protection of this
river corridor is addressed through the Outagamie County shoreland / wetland ordnance and the activities
of the WDNR as it seeks to preserve the Lower Wolf River Bottomlands. The Town can supplement
County and State efforts with effective local zoning and subdivision regulations that protect natural
resources through specialty zones and conservation subdivision techniques.
THREATENED AND ENDANGERED SPECIES
There are many threatened and endangered plant and animal species
in Outagamie County. Unfortunately, there is not a list or map
available specific to Hortonia. The WDNR has county-level maps
of threatened and endangered species. These maps do not precisely
identify habitat areas within each county, but it is known to have the
endangered Karner Blue Butterfly and threatened Blanding’s Turtle.
The WDNR does not want people to visit or otherwise intrude on
the habitats of endangered and threatened species. The WDNR is
attempting to identify and catalog endangered plant and animal
species across the state. For a complete, up-to-date list, refer to:
www.dnr.state.wi.us. The state and federal government have
programs and laws in effect to protect threatened and endangered
plant and animal species in the Town of Hortonia and beyond.
Henslow's Sparrow
EXOTIC AND INVASIVE SPECIES
Non-native, or exotic, plant and animal species have been
recognized in recent years as a major threat to the integrity of
native habitats and species, as well as a potential economic
threat (damage to crops, tourist economy, etc). The WDNR
requires that any person seeking to bring a non-native fish or
wild animal for introduction in Wisconsin obtain a permit.
The Town of Hortonia can help combat exotic species by
educating residents about non-native species (using the
Internet or a Town newsletter as primary tools in this effort)
and by encouraging (or even requiring through the Hortonia
Zoning Ordinance) residents to use native plants in
landscaping. For a complete listing of invasive plants and
animals, visit: www.dnr.state.wi.us/invasives/.
Spotted Knapweed
SOURCE: http://dnr.wi.gov/invasives/fact/knapweed.htm
An invasive specie found in Hortonia, WI.
5
Edge effects include the penetration of wind, light, and sound, as well as visibility beyond and into surrounding
areas. They are crucial in determining the type of habitat a corridor will provide.
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METALLIC AND NON-METALLIC MINING RESOURCES
As part of NR 135, Wisconsin Administrative Code,
adopted in December 2000, any community in
Wisconsin may adopt an ordinance to establish
requirements for reclamation of non-metallic mines,
such as gravel pits and rock quarries. If a community
decides not to develop its own ordinance, a county may
develop an ordinance for the area instead. Likewise, a
regional planning agency may develop ordinances for
the counties within its region. The ordinance must
establish reclamation requirements to prevent owners
and operators of quarries and gravel pits from
abandoning their operations without proper reclamation
of the mine or quarry.
Black Creek Limestone Company Quarry as seen from
USH 45 in the Town of Hortonia.
The process of siting a mine continues to be a local
matter governed under existing zoning procedures by local authorities. The reclamation requirements
through NR 135 add to the status quo, but do not replace or remove any other means of regulation. The
requirements neither regulate active mining processes nor have any effect upon local zoning decisions,
like those related to the approval of new mine sites.
Under NR135, any landowner of a demonstrated “marketable non-metallic deposit” may register the site
for mining. The local zoning authority may object to the application if the zone does not permit nonmetallic mining as a use. Registration expires after a 10-year period and may be extended for a single 10year period if it is demonstrated that commercially feasible quantities continue to exist at the property.
Otherwise, remediation action is required. Towns rezoning property in a manner consistent with their
Comprehensive Plan are not required to permit non-metallic mining operations that are inconsistent with
their adopted plan.
There is one active quarry operation in the Town of Hortonia, which is shown on the Current Land Use
Map presented later in this plan. This 800-acre site is zoned agricultural under the Hortonia Zoning
Ordinance. To more effectively regulate the operation of this quarry, the Town may want to consider
establishing requirements for quarrying including a mandatory operation plan. More information is
provided in the Issues and Concerns section of this chapter.
AIR QUALITY
Air pollutants can impair human health, harm the environment and cause property damage. The United
States Environmental Protection Agency (USEPA) evaluates air quality using health-based criteria
(science-based guidelines) as the basis for setting permissible air quality levels. One set of limits (primary
standard) protects health; another set of limits (secondary standard) is intended to prevent environmental
and property damage. A geographic area that meets or exceeds the primary standard is called an
attainment area; areas that don't meet the primary standard are called non-attainment areas.
Outagamie County is an attainment area. The nearest air quality monitoring station to Hortonia is located
in Appleton. More information on air quality is available at www.dnr.state.wi.us/org/aw/air/.
One of the primary contributors to diminished air quality in Hortonia is emissions from automobiles,
trucks and farm equipment. Providing access to mass transit, encouraging carpooling, and providing a
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trail system are some of the methods often discussed as means of reducing the amount of air pollution
caused by motor vehicles. Moreover, as fuel costs rise, drivers are traveling smarter to conserve fuel. This
means fewer trips, more carpooling, and route planning. Likewise, consumer demand for fuel-efficient,
environmentally friendly automobiles that generate less pollution has also increased with rising fuel costs.
SOILS
For additional information
about specific soil
characteristics and
limitations, refer to the
Outagamie County Soil
Survey, 1978.
Soils are the physical base for development and agriculture. The maps
on the following pages illustrate the different soil types in the Town of
Hortonia and their ability to support development. Knowledge of their
limitations and potential difficulties is important in evaluating crop
production capabilities and other land use alternatives, such as
residential development. Soil problems that limit development potential include: slumping, compaction,
erosion and high water tables. Severe soil limitations do not always mean a site cannot be developed, but
rather that more extensive construction measures may have to be taken to prevent damage to the land or
structures.
The maps provided on the next several pages are based on the soil data available from Outagamie County
and the East Central Wisconsin Regional Planning Commission (ECWRPC). They were developed to
identify approximate locations of soil limitations based on data mapped by Outagamie County. Specific
use of a parcel would depend on further tests of the soils involved.
The Building Suitability Map illustrates areas within Hortonia with severe engineering limitations based
on the attributes of identified soil types. Soils with “severe risk” from a building suitability standpoint are
poorly or somewhat poorly drained and require special engineering to be built upon. Engineering
problems due to the soils may include:
• A high shrink-swell potential (the difference in volume of a given weight of particular soil when dry
and when moist);
• A high water table that can cause problems such as flotation of pipes and frost-heave;
• The soil may have a low bearing capacity and not be suitable to support he weight of construction;
and/or,
• Bedrock near the surface makes digging basements or location of sewage and water mains difficult.
The Sanitary Suitability Map was derived by Outagamie County. It is based on assessment of soils with
respect to their ability to support traditional on-site individual sanitary systems. The innovative systems
profiled in the Utilities and Community Facilities Chapter are likely an option for many areas. Any
sanitary system will require on-site investigation.
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Cultural & Historic Resources
Historical and cultural resources, like natural resources, are
valuable community assets warranting preservation. Town
governments, like other governments in Wisconsin, have the
authority to preserve their historical heritage (Wisconsin Statutes
§60.64). One of the most effective ways to do so is through a local
historic preservation ordinance. A historic preservation ordinance
can establish procedures to designate historically and culturally
sensitive properties and places and to review projects that have the
potential to negatively affect these important places.
Hortonia’s history is documented in the Introduction Chapter.
Physical evidence of Hortonia’s history can be seen in the many
historic buildings scattered across the Town. The Wisconsin
Historical Society has created the Architecture and History
Inventory (AHI) - an Internet-based search engine that provides
architectural and historical information on approximately 120,000
properties in Wisconsin. The AHI has information on buildings,
structures, and objects that contribute to Wisconsin’s unique
history. The AHI documents a wide range of historic properties
such as round barns, log houses, cast iron bridges, small town
commercial buildings, Queen Anne homes, among others. The
Wisconsin Historical Society identifies 20 historical sites in the
Town of Hortonia. The majority of the structures listed are historic
farm complexes (e.g. barns, farmhouses, outbuildings). The
complete list is available on-line at:
http://www.wisconsinhistory.org/. Four important listings in the
AHI are profiled below:
•
Hortonia Town Hall. The Hortonia Town Hall was
constructed in 1896. This front gabled style building with
clapboard siding was originally designed as a one-room
schoolhouse. Additional information about the Town Hall is
included in the Utilities and Community Facilities Chapter of
this plan.
Examples of Historic Structures in Hortonia:
TOP: Hortonia Town Hall
MIDDLE: Log Home
BOTTOM: Knowledge Hill School
•
Lime Kiln. Located in Section 30, this structure was
constructed in 1861. The historic name for this stone kiln was the LeFevre/Nordman and Westphal
Lime Kiln.
•
West Hortonia Cheese Factory. Located four miles west of Hortonville on CTH TT this structure
was constructed in 1890. The first official documentation of the cheese factory appears in the State of
Wisconsin Dairy Statistics for 1913, State Historical Society, Madison, WI. The operation closed its
doors in 1960 and is currently used for residential purposes. The original "core" of the plant consists
of gabled single- and two-story structures with a flat-roofed receiving area and boiler room,
measuring approximately 80' x 60'. Additions to the core consist of cinder block structures and
expanded office space.
•
Log Home. Located in Section 34 off CTH T, this home has a fieldstone first floor and log second
story. The original date of construction is unknown.
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Surprisingly, the AHI doesn’t list the Knowledge Hill
School building. This schoolhouse was constructed in
1872 - nearly a quarter century before the Hortonia
Town Hall was built. Like the Hortonia Town Hall, it
is a traditional front gabled style building with
clapboard siding. It is located on the same property as
the log home referenced above. The Utilities and
Community Facilities Chapter lists this property as a
potential site for relocation of the Hortonia Town
Hall to cluster together and showcase three historic
buildings in Hortonia on one property.
Knowledge Hill School Wall Sign
County Road T - Section 34 - Town of Hortonia
Current Policies & Programs
This section highlights a few of the primary programs available at this time to protect Hortonia’s natural
and farmland areas.
COUNTY SHORELAND/WETLAND ZONING
Shorelands and wetlands are often viewed as valuable recreational and environmental resources. These
areas provide for stormwater retention and habitat for various types of fish and wildlife. Development in
these areas may have an adverse effect on water quality, wildlife habitat and stormwater drainage. In
addition, it may also result in increased development and maintenance costs to protect from the
occurrence of flooding and high water, increased flood insurance premiums, extensive site preparation,
and maintenance and repairs of roads.
The State of Wisconsin requires that every county adopt a Shoreland/Wetland Ordinance to address the
problem associated with development in these areas. Development in shoreland areas is generally
permitted, but specific design techniques must be considered. Development in floodplain areas is strictly
regulated and in some instances not permitted. The authority to enact and enforce these types of zoning
provisions is set forth in Ch. 59.97 Wis. Stats. and Wisconsin Administrative Codes NR115.116 and 117,
and is established in the Outagamie County Zoning Ordinance.
Outagamie County is currently administering its Shoreland/Wetland Ordinance in unincorporated areas of
the county including the Town of Hortonia.
FARMLAND PRESERVATION PLAN/EXCLUSIVE AGRICULTURAL ZONING
Maintaining productive land for agricultural uses has been a long-time goal of Wisconsin. To achieve this
goal, the State has enacted several types of legislation that provide monetary incentives to eligible
landowners to keep their land in a productive state.
Outagamie County has adopted a Farmland Preservation Plan so that local farmers are eligible for tax
credits through the Wisconsin Department of Agriculture, Trade and Consumer Protection (DATCP)
Farmland Preservation Program and provide for exclusive agricultural zoning. Farmers interested in this
program sign-up with DATCP. Unfortunately, the Farmland Preservation Program is not working as well
as it was intended. Not only has the amount of tax credits been reduced significantly over the last several
years, but the paperwork required has also deterred many. As a result, farmland is being lost in Outagamie
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County as more and more people seek to develop rural residences. Outagamie County will likely address
this farmland preservation and protection issue through a county comprehensive plan that is currently
being developed.
OUTAGAMIE COUNTY LIVESTOCK WASTE MANAGEMENT ORDINANCE
Since 1986, Outagamie County has had a Livestock Waste Management Ordinance in effect. It requires
that a permit be secured from the Outagamie County Zoning Department prior to construction of animal
waste storage facilities and that the most current Natural Resource Conservation Service (NRCS)
standards and specifications for these facilities be followed. The Outagamie County Land Conservation
Department is involved in virtually all new and modified waste storage facilities due to their technical
expertise. The ordinance covers all types of animal waste storage facilities by regulating the location,
design, construction, operation, and maintenance of animal feedlots and livestock waste storage facilities,
including abandonment. It also regulates the land application of all livestock waste in Outagamie County.
WISCONSIN POLLUTANT DISCHARGE ELIMINATION SYSTEM PERMITS (WPDES)
Any CAFO with over 1,000 animal units, or more than 300 animal units that meet discharge criteria, is
required to obtain a WPDES Permit. This same permit is also issued to all businesses and industries in the
State of Wisconsin that discharge water or wastewater to surface water, groundwater and/or wetlands.
The permits require applicants to provide a plan for runoff management for outdoor lots and feed storage
areas, a manure storage facility plan/diagram, a comprehensive manure management plan to be updated
annually, willingness to submit to monitoring and reporting requirements and a daily record keeping log
system. The permit essentially regulates land application, manure storage and runoff management – all of
which have the potential to be a discharge to waters of the State.
The WPDES Permit process provides the opportunity for public comment, which may result in changes to
the environmental assessment completed by WDNR. The WPDES does not address noise, land value,
traffic or other types of similar issues because there is no statutory authority for the permits to address
these types impacts. These types of concerns can only be regulated by county and local ordinances.
OUTAGAMIE COUNTY LAND & WATER RESOURCE PLAN
The Outagamie County Land and Water Resource Plan was developed in June of 2001 in accordance with
Chapter 92.10 Wis. Stats. The plan:
•
•
•
Serves as a guide for resource management planning and decision making;
Assesses land and water resource conditions; and,
Identifies problems and priorities.
Copies of the plan are available from the Outagamie County Land and Water Conservation Department.
CONSERVATION RESERVE ENHANCEMENT PROGRAM (CRP)
For More Information:
www.fsa.usda.gov/dafp/cepd/crp.htm
CRP is a USDA program that enhances the successful Conservation Reserve Program that has run in the
U.S. since 1985. In Wisconsin, 600,000 acres have been taken out of agriculture production to decrease
erosion, enhance water quality, and establish wildlife habitat in the 13 years since its inception. Under the
program, a farmer volunteers to take land out of production for a period of 10 or 15 years and is paid
annual rental payments and cost-share assistance to establish long-term, resource-conserving covers on
eligible farmland.
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The Commodity Credit Corporation (CCC) makes annual rental payments based on the agriculture rental
value of the land and it provides cost-share assistance for up to 50% of the participant’s costs in
establishing approved conservation practices. Participants enroll in CRP contracts for 10 to 15 years.
The CCC through the Farm Service Agency (FSA) administers the program, and program support is
provided by Natural Resources Conservation Service, Cooperative State Research and Education
Extension Service, State forestry agencies, and local Soil and Water Conservation Districts. At the end of
the contract period, the farmer can sell the land or put it back into production.
THE RIGHT TO FARM ACT
Wisconsin has a right-to-farm law protecting farmers from nuisance lawsuits related to typical farm noise
and odors. As residential development expands into farmland areas, it is inevitable that odor issues
develop. Often the issues relate to manure spreading and storage. Another common farm practice is
plowing and harvesting at night, which also creates some concerns for residents living nearby. People
who move to rural areas near farmland are not aware of these and other potential nuisances. As more
people move to rural farmland areas conflicts are inevitable. To minimize conflicts, education is strongly
recommended. By educating new landowners about potential conflicts, “surprise” nuisances can be
avoided.
The Town of Freedom in Outagamie County has an Agricultural Committee to respond to concerns and or
complaints of rural residents pertaining to farming operations. As a policy, if a farm operation is adhering
to required ordinances and standard operating procedures, the Agricultural Committee will not interfere
with said farming operation. The Town of Hortonia may consider establishing a similar committee. This
may become particularly important as development pressures mount in the future.
2002 FARM SECURITY AND RURAL INVESTMENT ACT
The Farm Security and Rural Investment Act of 2002, which governs Federal farm programs for six
years, was signed into law on May 13, 2002. Its provisions support the production of a reliable, safe, and
affordable supply of food and fiber; promote stewardship of agricultural land and water resources;
facilitate access to American farm products at home and abroad; encourage continued economic and
infrastructure development in rural America; and ensure continued research to maintain an efficient and
innovative agricultural and food sector.
Under the 2002 Farm Act, the milk support purchase program, which had been operating year-to-year,
became a multi-year program. The Commodity Credit Corporation (CCC) will buy, at support purchase
prices, any butter, cheddar cheese, or nonfat dry milk that is offered to it and meets specifications. The
support purchase prices are set to ensure that the price of manufacturing milk averages at least the milk
support price. The Secretary has authority to adjust the support purchase price if deemed necessary.
The Dairy Export Incentive Program (DEIP) pays cash bonuses that allow dairy product exporters to buy
U.S. products and sell them abroad when international prices are below domestic prices. DEIP removes
products from the domestic market, helps develop export markets, and plays an important role in milk
price support. The DEIP quantities and dollar amounts are subject to World Trade Organization
restrictions under the Uruguay Round Agreement on Agriculture.
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The 2002 Farm Act established a national Dairy Market Loss Payments (DMLP) Program to provide a
price safety net for dairy producers. A monthly direct payment is to be made to dairy farm operators if the
monthly federal prices fall below a certain level.
ENVIRONMENTAL QUALITY INCENTIVES PROGRAM (EQIP)
For Additional Information…
The EQIP was reauthorized in the Farm Security and Rural
www.nrcs.usda.gov/programs/eqip/
Investment Act of 2002 (Farm Bill) to provide a voluntary
conservation program for farmers and ranchers that
promotes agricultural production and environmental quality as compatible national goals. EQIP offers
financial and technical help to assist eligible participants install or implement structural and management
practices on eligible agricultural land.
The EQIP offers contracts with a minimum term that ends one year after the implementation of the last
scheduled practices and a maximum term of ten years. These contracts provide incentive payments and
cost-shares to implement conservation practices. Persons who are engaged in livestock or agricultural
production on eligible land may participate in the EQIP program. The EQIP activities are carried out
according to a plan of operations developed in conjunction with the producer that identifies the
appropriate conservation practice or practices to address the resource concerns. The practices are subject
to NRCS technical standards adapted for local conditions. The local conservation district approves the
plan.
The EQIP may cost-share up to 75% of the costs of certain conservation practices. Incentive payments
may be provided for up to three years to encourage producers to carry out management practices they
may not otherwise use without the incentive.
ATCP 51 - LIVESTOCK SITING RULE
On September 16, 2005, the Wisconsin Department of Agriculture's Board gave final approval of ATCP
51, which establishes standards for the siting of livestock operations. In its approval, the Board added an
amendment to have the Wisconsin Department of Agriculture, Trade and Consumer Protection (DATCP)
annually review ATCP 51 to see if any modifications are needed.
ATCP 51 implements Wisconsin’s Livestock Facility Siting Law (s. 93.90, Stats.). The law does not
require local approval of new and expanding livestock operations, but if local approval is required, the
local government must grant or deny approval according to this rule. A local government may not
consider other siting criteria, or apply standards that differ from this rule, except as specifically authorized
in the law. This rule applies to new or expanded facilities that keep cattle, swine, poultry, sheep or goats.
Under the law, a local government may not deny or prohibit the siting or expansion of a livestock facility
of any size unless one of the following applies:
•
•
•
•
The site is located in a non-agricultural zoning district.
The site is located in an agricultural zoning district where the livestock facility is prohibited. The
zoning prohibition, if any, must be clearly justified on the basis of public health or safety. The law
limits exclusionary local zoning based solely on livestock facility size.
The proposed livestock facility violates a valid local ordinance adopted under certain state laws
related to shoreland zoning, floodplain zoning, and construction site erosion control or stormwater
management.
The proposed livestock facility violates a State building, electrical or plumbing code for that type of
facility.
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•
The proposed livestock facility will have 500 or more “animal units” (or will exceed a lower
threshold incorporated in a local zoning ordinance prior to July 19, 2003), and the proposed livestock
facility violates either 1) the standards in the rule or, 2) a stricter local standard by ordinance. Those
standards must be based on scientifically defensible findings of fact that clearly show the standards
are necessary to protect public health or safety.
Agricultural, Natural & Cultural Resources Issues & Concerns
What follows is a description of the major issues and concerns expressed during the planning process.
Strategies to address these issues and concerns are included in the Agricultural, Natural & Cultural
Resources goals, objectives, and policies section of the Implementation Chapter.
QUARRY DEVELOPMENT
As was previously noted in this chapter there is one active quarry in the Town of Hortonia. This quarry is
currently zoned agricultural. Town residents have expressed concern about possible quarry expansion.
The Hortonia Zoning Ordinance provides little direction for the permitting and regulation of quarries.
Generally speaking, the Town of Hortonia supports its local quarry operation and understands its potential
need to expand in the future. Likewise, the Town understands that in challenging economic times, local
farmers and larger landowners consider quarry operations as a means to improve their economic situation.
Currently the Town of Hortonia reviews all rezoning requests, including requests for quarry operations
and expansions. The Town will continue to use its zoning ordinance to ensure that local operations do not
have a negative impact on neighboring properties or the rural character of the Town. To do this more
effectively, the zoning ordinance could be updated to address:
•
•
•
•
•
•
Location and size of quarry operation
NOTE: The ideas provided in this section are
Hours of operation & blasting periods
for discussion purposes. The Town is not
obligated to update its ordinance to include any
Reclamation plans
of these requirements.
Patterns of land use on the Future Land Use Map
Financial guarantees by bonding, conditioned upon faithful compliance with zoning (including
conditional use permit standards) to sufficiently ensure full reclamation of a quarry area
Conditional use and blasting permits to be renewed annually
In addition to zoning requirements, applications for rezoning could be updated to stipulate specific
submittals for review by the Town of Hortonia Plan Commission and Town Board. Required information
may include:
•
•
•
•
•
•
Current zoning (for new quarry applications)
Total number of acres involved
Total number of acres for quarry operation
only
Total number of yards to be removed (soil
type)
Estimated number of years to be operated
Boring sample results (independent
company may be required)
•
•
•
•
•
•
•
Any blasting required (State licensing
supervisor)
Proposed operating hours for crushing,
blasting, washing, hauling, etc.
Detailed site plan
DNR delineated wetlands map of area
Dewatering locations
Traffic pattern and road maintenance
proposal
Dust control measures
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•
•
•
•
•
Wellhead protection (insurance)
Listing of types of equipment
Projected work hours and number of
days per week
Description of how blasting will be
monitored and by whom
Description of contents of blasting
records and location of records
•
•
•
•
Description of how citizen complaints
will be handled and by whom
Description for groundwater monitoring
provisions
Home and well pre-inspection results
(independent company may be required)
A reclamation plan under the guidelines
of NR13
To ensure that Hortonia remains attractive for residential development, goals and objectives are
included in this Plan for the Town to establish required agreements with local quarry operators to
limit nuisances for neighboring properties. These agreements should include annual Town licensing
fees that the Town will collect in a fund to be used to maintain roads damaged by quarry traffic. Such
a fee would be in addition to any financial assurance required through the Outagamie County
Nonmetallic Mining Reclamation Ordinance.
For newly proposed quarry operations or expansions of existing operations, the Town of Hortonia
should pursue updates to the zoning ordinance to require development agreements with local
operators. At a minimum, these agreements must:
1. Include provisions for requiring local quarry operators to submit annual written reports
discussing the status of their quarry site, significant changes in mineral extraction operations,
and activities anticipated during the next year. Said report shall also document blasting
activities for the year of the report and log all complaints received, and include the results of
annual groundwater monitoring efforts.
2. Require a detailed site plan submittal to the Town to define the existing and proposed limits
of any quarry operation.
3. Require landscape berms to be installed at mutually agreed upon locations to screen quarry
operations for roadways and nearby residential development.
4. Require that quarry access to County and Town roads be paved as needed so as to prevent the
overflow and tracking of materials on Town and County roadways.
5. Define blasting times and restrictions related to ground vibration, air blasting, fly rock.
6. Stipulate requirements for the safe storage of explosives in accordance with COMM 7 of the
Wisconsin Administrator Code and annually submit to the appropriate fire department a copy
of its explosives storage permit.
7. Require quarry operators to maintain a call list to notify residents in the vicinity of the quarry
of imminent blasting activities. The calls will be on a request basis only and a single
telephone call will be satisfactory.
8. Require quarry operators to comply with all applicable noise regulations.
9. Require quarry operators to pay an annual licensing fee, the profits from which will be used
to offset Town road maintenance and safety costs.
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10. Require quarry operators to maintain liability insurance policy that includes provisions for
addressing well problems for adjoining property owners.
11. Require quarry operators to provide a groundwater-monitoring program, including the use of
monitoring wells at the perimeter of the quarry site to monitor the impact of mining operation
on groundwater levels and quality.
12. The Town of Hortonia reserves the right to have Town authorized personnel or its
representative conduct on-site inspections as needed per conditional use agreement.
The Future Land Use Map does not illustrate any quarry expansions or new quarry operations. In the
future, local quarry operators will make expansion decisions depending on availability of the resource
and local demand. The Town will consider all expansion requests, in accordance with all local,
county, and state requirements.
MAINTAIN RURAL CHARACTER
What is “rural character”? For every Town the answer may be somewhat different. In the Town of
Hortonia, rural character means a blend of:
•
•
•
•
Farm fields, barns, silos and crops
Open space
Rustic Town roads
Views of Mosquito Hill and other open
areas
•
•
•
•
Black Otter Lake and Stream
Abundant wildlife
Rolling topography
Wolf River
Residents are very concerned about their ability to retain their rural character. Rapid growth and
development seen in Greenville and to a lesser extent Dale and Ellington are of concern to Hortonia
residents. They do not want to see their rural character sacrificed to make way for subdivision
development. The woodlands, wetlands, and open spaces in Hortonia provide valued hunting and
fishing opportunities. Too much development will impact these recreational pursuits.
One way to protect valued natural resources and accommodate development is with conservationbased subdivisions. This type of development approach is discussed more in the Housing Chapter.
Another opportunity to consider is the development of an overlay zoning district to offer extra
protection to valued natural resources that might not otherwise be protected. To explain, wetlands,
floodplains and shorelands are protected by existing county and state regulations. However,
woodlands, grasslands, prairie areas, scenic views and hilltops are not protected. Below are some
sample requirements for a Critical Areas Overlay Zoning District the Town may want to consider
incorporating into the Hortonia Zoning Ordinance.6
Purpose. The Critical Areas Overlay (CAO) District is intended to protect the public health and safety by minimizing
development in areas prone to unwanted soil erosion and groundwater contamination, and on sites difficult to develop
in a safe manner, and promote the general welfare by preserving unique and valuable geologic and other natural
resource features of the Town of Hortonia. The regulations of the CAO District are premised, in part, on a shared
community vision, discovered and detailed through the comprehensive planning process that calls for protection of
natural resources and unique geologic features found within the Town.
6
Model Based on Town of Empire, Fond du Lac County, Wisconsin Zoning Ordinance developed by the
East Central Wisconsin Regional Plan Commission, 1999.
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1.
General Protection Policies. It is the policy of the Town of Hortonia that the beneficial functions, structures, and
values of critical areas be protected, and, further, that potential dangers or public costs associated with
inappropriate use of such areas be eliminated or reduced by reasonable regulation. The standards of the CAO
District represent a reasonable balance between individual and collective interests. In striking that balance, the
Town recognizes that because of the wide variety of types of developments, and the relationships between them
and their natural environments, it is neither possible nor advisable to establish inflexible critical areas protection
standards. In considering the appropriate course of action to follow when allowing deviations from the standards
of this ordinance, the preferences set forth below are established to guide development actions; they are in no
particular order, and may be mixed to achieve maximum critical areas protection while facilitating reasonable use
of property:
a.
b.
c.
d.
Avoid the impact altogether by not allowing a particular action unless no reasonable,
non-critical area alternatives are available;
Avoid the impact by directing the particular action to non-critical areas on the same site,
which may require deviation from the physical or dimensional requirements of this
Ordinance (such as setbacks or lot dimensions);
Minimize the impact by limiting the degree or magnitude of the action;
Rectify the impact by repairing, rehabilitating or restoring the affected critical area.
2.
Triggering Applications. The regulations in this overlay shall apply in all zoning districts, and are triggered
whenever an application for any of the following actions is filed (hereinafter referred to as “triggering
applications”) and it is found that such action is taking place on a parcel of real property containing a designated
critical area or its buffer:
3.
Exemptions. The following activities are specifically exempt from the provisions of this ordinance, whether or
not such activity requires the submission of a triggering application:
a.
b.
c.
d.
e.
f.
Existing and ongoing agricultural activities;
Normal and routine maintenance and operation of existing irrigation and drainage ditches, swales,
canals, detention facilities, wastewater treatment facilities, landscape amenities, farm ponds, fish
ponds, manure lagoons and livestock water ponds; provided that such activities do not involve
conversion of any critical areas not being used for such activities to another use;
Construction, maintenance, operation and repair or replacement of existing utility facilities and
associated rights-of-way, including reasonable access roads;
Site investigative work in conjunction with the preparation of a land use application
submittal, such as surveys, soil logs, percolation tests and other related activities;
Maintenance, operation, reconstruction of or addition to existing roads, streets, and driveways;
Any projects for which application(s) have been submitted prior to the adoption of this Ordinance.
4.
Application of Standards. No application involving a designated critical area shall be approved unless it is
determined to be in compliance with this Ordinance.
5.
Identification of Critical Areas Through Public Information. Upon submittal of triggering application, the
Permit Issuer shall determine the probable existence of critical areas on the parcel involved in the application. The
Permit Issuer shall review and consider the most appropriate, publicly available information in determining the
probable existence of critical areas, including, but not limited to, the following:
a.
b.
c.
d.
e.
6.
Requirement of Private Studies/Other Information. The Permit Issuer may also conduct field investigations
with permission of the landowner, and the Town may require private studies be conducted by the applicant,
including, but not limited to, the following:
a.
b.
7.
Large scale (1" = 200') Outagamie County topographic maps;
USGS 7.5-minute topographic quadrangle maps;
1" = 400' aerial photographs;
"Wisconsin Wetland Inventory" maps prepared by the Wisconsin Department of Natural Resources;
Town of Hortonia Comprehensive Plan.
Topographic surveys prepared by and certified by a Wisconsin registered land surveyor at a contour
interval of not less than two (2) feet;
Field surveys of trees and/or plant material compiled by a landscape architect, forester, arborist,
biologist or botanist with a professional degree in one of those fields of endeavor.
Application Processing When Critical Areas are Present.
a.
Conditional Use Permit Required. Any action taking place on a parcel of real property containing
a designated critical area requires that the applicant apply for, and be granted a Conditional Use
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Permit. If the triggering application is an application for a Conditional Use Permit, such application
shall be sufficient to satisfy this requirement.
8.
b.
Submission Requirements. Applicants shall submit the following information along with the
application for a Conditional Use Permit:
i. Ten (10) full size copies of a "Critical Areas Protection Plan" prepared on tracing
cloth, reproducible drafting film, or paper of good quality at a map scale as
appropriate that correctly shows the following information:
ii. A drawing legend at appropriate scale with the date of preparation, north arrow, and
designation of existing and proposed contours at a minimum two (2) foot contour
interval;
iii. The location of the proposed development activity;
iv. The names, addresses and telephone numbers of the owners, Subdividers, lessee
and/or developer(s) of the property and of the designer of the plan;
v. The boundary line of the site with dimensions, indicated by a solid line, and the total
land area encompassed by the site;
vi. The location of any existing or proposed lot lines, right-of-way lines and easements;
vii. The location and dimensions of all permanent easements on the subject property and
boundary lines adjacent to the site;
viii. The location and extent of any existing critical areas features. Each individual
resource area on the site shall be graphically and numerically shown on the Critical
Areas Protection Plan;
ix. Graphic and numeric illustration shown on the Critical Areas Protection Plan of
those existing critical areas features (in square feet or acres) that will be disturbed
and those that will be preserved. Numeric data may be shown in tabular form with
labeled reference to specific areas designated on the Critical Areas Protection Plan;
x. Graphic illustration and notes relating to how the protection/mitigation measures set
forth in this ordinance will be achieved.
c.
Application Processing. If the procedures governing the triggering application require Planning
Commission review, the Critical Areas Protection Plan shall be reviewed, and protection standards
applied, concurrent with the triggering application.
d.
Required Findings. In addition to addressing the decision criteria of the underlying triggering
application, the decision-making body shall also determine how the Critical Areas Protection Plan
meets the protection standards set forth in this ordinance or, when deviation from the standards is
permitted, how the plan achieves maximum critical areas protection while facilitating reasonable
use of property.
e.
Exception for Existing Lots of Record. Nothing in this ordinance shall prevent one single-family
detached home from being built on any legal lot existing on the effective date of this ordinance,
provided it complies with the other development standards of this ordinance, any grading
ordinances presently in effect, and the development standards of the underlying zone. Where
provisions may conflict, the most restrictive shall apply.
Protected Critical Area: Steep Slopes. The purposes of regulating steep slope areas are to promote safe
conditions by preventing development that requires the placement of roads on steep inclines, minimizing erosion
and negative visual impacts by preserving natural grades of the land, and protecting visually prominent natural
features by preserving ridgelines and other significant natural topographical features of hilly areas within the
Town of Hortonia.
a.
Regulated Area. Any properties or portions thereof that have an average slope of fifteen (15) percent or
greater shall be subject to the provisions of this subsection.
b.
Prohibited or Regulated Activities.
i.
ii.
iii.
All quarrying, sand and gravel pits, and other nonmetallic mining activities are prohibited in
the regulated area;
No buildings, structures, driveways, private roads or roads to be dedicated to the public shall
be constructed upon portions of any site where the true slope is twenty-five (25) percent or
greater;
No buildings or structures shall be constructed on a site unless its access road (on or off-site)
can be built so that no length of said road has a slope of greater than twenty-five (25) percent;
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iv.
v.
vi.
vii.
viii.
c.
9.
No portion of any building or structure shall be constructed to extend above the highest point
of the hill or bluff upon which said development is taking place unless the proposed
construction will be screened from public view from below by existing, mature vegetation;
No telecommunication tower locating in the Regulated Area shall be located within five
thousand (5,000) feet of an existing telecommunication tower; said distance to be measured by
a straight line from the base of the nearest existing tower to the base of the proposed tower
site;
On lots with an average slope of fifteen (15) percent to thirty (30) percent, impervious surface
shall not exceed ten (10) percent of the gross lot size;
Removal of existing mature vegetation shall be minimized to the greatest extent possible;
Grading shall create a naturally-sloped effect that conforms to the topography of the site.
Disturbed areas shall be replanted with common vegetation.
Exception for Existing Lots of Record. Nothing in this ordinance shall prevent one one-family
detached home from being built on any legal lot existing on the effective date of this Ordinance,
provided it complies with the other development standards of this Ordinance, any grading ordinances
presently in effect, and the development standards of the underlying zone. Where provisions may
conflict, the most restrictive shall apply.
Protected Critical Area: Woodlands. The woodlands of the Town of Hortonia significantly contribute to the
scenic attractiveness of the Town and provide habitat for numerous species of plant and animal life. The purpose
of these regulations is to perpetuate the existence of woodlands.
a.
Regulated Area. Areas or stands of trees whose total combined canopy covers an area of one (1) acre or
more and at least fifty (50) percent of which is composed of canopies of trees having a diameter at breast
(DBH) of at least ten (10) inches; or any grove consisting of fifteen (15) or more individual trees having
a DBH of at least twelve (12) inches whose combined canopies cover at least fifty (50) percent of the
area encompassed by the grove. No trees grown for commercial purposes should be considered a
woodland.
b.
Prohibited or Regulated Activities.
i.
ii.
iii.
iv.
Clearing of trees shall be permitted for building footprints, driveways and sites for onsite
sewage disposal systems. Building footprints may be cleared a distance of twenty-five (25)
feet from the exterior walls of principal buildings and fifteen (15) feet from accessory
buildings. Selective pruning of remaining trees shall be permitted, provided that seventy (70)
percent of the original canopy is left intact;
Selective pruning of woodlands shall be permitted, provided that seventy (70) percent of the
original canopy is left intact;
Clear cutting on contiguous land under single ownership shall be permitted, provided that the
clear cut area not exceed the lesser of ten (10) acres or thirty (30) percent of woodlands in any
ten-year period. An area clear cut for commercial purposes shall not be converted or
developed for another use within seven (7) years from the date clear cutting was completed;
Other sound forestry practice techniques (as defined in Chapter 46, Wisconsin Administrative
Code) recommended by a qualified forester are permitted if designed to protect or enhance the
woodlands.
LONG TERM SUSTAINABILITY OF FARMING IN HORTONIA
A depressed farm economy and growing pressure from non-farm development has led to increasing
conflicts over the use of agricultural land. Central to these conflicts is the demand for rural housing
and recreational land development, which has accelerated the rate of farmland conversion to non-farm
uses. In fact, non-farm growth pressures lead to Wisconsin passing the Comprehensive Planning Law
in 1999 to encourage communities to write and use comprehensive plans to guide land uses decisions.
Outagamie County and the Town of Hortonia have not escaped from this residential development
pressure. Between 1990 and 1998, Outagamie County lost 100 farms totaling approximately 18,000
acres of farmland to development. These figures translate into a 2.7% decrease in the overall number
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of farms in the County and a 6.0% decrease in the amount of land in farm uses over the same period.7
Despite the losses, farming remains a very significant business in the county, but questions remain
about the long-term stability of farm uses.
At several points in the Hortonia planning process, residents expressed their desire to see farmland
remain an important part of the landscape over the next twenty years. At the same time, local farmers
and others expressed their concern about the long-term sustainability of farming. As local farmers
age, they choose to sell their land or simply stop their farming activities. Unfortunately, there are
relatively few young people that are becoming farmers in today’s economy. Instead, young people
seek jobs with vacations, 401K, and other benefits farming cannot provide. As a result, when local
farmers retire, they cannot find young farmers to purchase additional farmland. Often, faced with a
need for retirement income, local farmers seem to have no choice but to sell their property for
development.
This section highlights options available to
local farmers with respect to their farmland
beyond simply subdividing it for residential
development.
What is a Conservation Easement?
A conservation easement is a voluntary legal agreement
between a landowner and a land trust or government agency
that limits present and future development of a parcel.
Under a conservation easement, the landowner retains
Land Trusts
ownership of the land (within the terms of the easement –e.g.
and Conservation Easements
only for farmland or natural space, not for development) and
Land trusts provide an option to
the land trust takes the responsibility for protecting the land’s
landowners seeking to protect natural areas
conservation values.
and farmland. Land trusts offer landowners
advice on protection strategies that best
Donated conservation easements that meet federal tax code
meet the landowner’s conservation and
requirements can provide significant tax advantages to
financial needs. Land trusts accept lands
landowners because their land will be taxed as undevelopable
donated by landowners for conservation
land, which is a much lower rate than developable land.
purposes. Land trusts can also work with
Qualified easements may also generate charitable contribution
dedications for income and transfer tax purposes.
landowners to establish conservation
easements (see box). Residents are
encouraged to talk with local land trusts about what options
Local Land Trusts
are available to protect local farmland.
Specialty Farming
Specialty or niche farming provides an alternative to
conventional agricultural production, particularly for smaller
farmers attempting to compete with larger agricultural
operations. Hortonia’s location and highway access provide
an opportunity to market directly to larger population centers
in the Fox River Valley. Marketable specialty agricultural
products may include:
•
•
Organic milk and cheese from local dairy operations
Organic vegetables and produce (sold locally at a farmers
market in Hortonville, New London and Appleton)
Glacial Lakes Conservancy: Provides
enduring solutions for the preservation
of land, waters, and woodlands from
Lake Michigan to Lake Winnebago.
Northeast Wisconsin Land Trust:
Preserves and restores the natural
heritage of Northeast Wisconsin land
and waters through partnerships in land
conservancy and resource
management.
7
Program on Agricultural Technology Studies, Wisconsin County Agricultural Trend Data, 1990 – 1998. This data represents the
most recent complete comparative county assessment completed in WI. No data specific to Hortonia is available from this source.
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•
•
•
•
•
•
Aquaculture products
Pumpkin patches, berry farms, and orchards that allow visitors to pick their own produce
Walnuts, maple syrup, and pine trees (for landscaping or holidays) from local tree farms
Flowers from local greenhouses
Horse farms (offering boarding and potential trail access)
Raising of buffalo, llama, ostrich, and other non-traditional farm animals
Organic farming is a particularly attractive specialty farm option given that organic food is a fastgrowing industry in the United States. Products that once occupied a boutique marketplace niche are
becoming mainstream as consumers seek healthier alternatives to conventional farm produce. Organic
and specialty farming counter the notion that farms must become very big or be lost to development.
They provide a profitable choice for small, family farmers. The Future Land Use Chapter identifies
agricultural districts to target farm preservation and location options for a Town farmers market. To
support specialty farming the Town can form an agricultural committee to coordinate with local
farmers, provide education materials through a Town web page and newsletters, and encourage
efforts of the Outagamie UW-Extension Agricultural Resource Agent.
Value Added Operations
Traditionally, farmers sell a parcel or two as a
means to acquire additional cash flow. As an
alternative option, value added operations, could
be established in agricultural areas. These options
include:
•
•
Rural roadside stands to sell locally grown
products.
Sale or lease of small areas for wind turbines
and cellular towers. These users provide
rental fees in excess of $7,000 per year per
turbine/tower for farmers and the area around
these uses can continue in farming without
any noticeable conflict.
To support value added operations, the Town of
Hortonia could:
•
•
•
Cuff Berry Farm is an example of a
Value-added operation in Hortonia.
Establish a location and market a local farmers market or coordinate with Hortonville and New
London to establish farmers markets in these communities.
Support the establishment of an agricultural committee to coordinate roadside stand sales and
develop a brochure/Internet marketing tool/map to direct customers to local offerings.
Adopt minor amendments to the Hortonia Zoning Ordinance to more clearly permit accessory
uses and structures in agricultural areas to support value added opportunities for local farmers
(e.g. roadside stands, home occupations, corn mazes, bed and breakfasts, petting zoos, farmer-fora-day camps, etc.)
7-33
Conservation–Based Development Approaches8
If a landowner still decides that the sale of their farmland for development is their best decision,
conservation subdivision development approaches provide an option that can be used to
simultaneously accommodate new development and protect farmland. Using this approach, the finest
farm soils should be identified on a site for preservation and cluster housing sites located in adjacent
areas. For more information on conservation subdivisions, see the Housing Chapter.
Return of Young Workers to Farming
Nationally, only 3.3% of farmers are under the age of 34. The national median age of a farmer is 55.
These facts are of great concern to the USDA, as well as local farmers. Fortunately, there is some
good news. A slow resurgence of younger workers are seeking a living in farming, particularly on
smaller farms using traditional tools and practices.9 Young entrepreneurs are discovering career
opportunities in small-scale agricultural production, marketing, distribution, and related fields. This
change is due to many different factors, including:
•
A growing interest in developing and supporting local food economies. The food we consume in
the U.S. travels an average of 1,400 miles from farm to table. Shipping food great distances
requires the use of valuable fossil fuel resources and makes our food supply vulnerable to
destruction or contamination. Local food economies, in which small farmers and market
gardeners grow food for local consumers is enticing many young entrepreneurs to consider
careers in farming. Between 1994 and 1998,
the number of farmers markets in the U.S.
doubled. In 2000, there were more than 3,000
farmers markets nationwide.
•
Strong organic and specialty farm markets
that are proving very profitable. Since 1990,
the organic food industry has grown 20% or
more each year and now constitutes an
almost $8 billion industry.
•
A changing work ethic demonstrated by
generation “X” who value quality of living
over traditional corporate success indicators
(e.g. vacation, corner office, significant
paycheck).
Farmer Traveling along Ledge Hill Road in Hortonia.
•
Efforts of the state and federal government to establish healthcare options for workers in a variety
of jobs not otherwise covered by insurance.
•
Federal government establishment of individual retirement account options (e.g. Roth IRA, etc.)
that provide viable independent retirement savings options for workers.
8
It is important to indicate here that conservation subdivision developments are not necessarily the best means to preserve farmland.
To be successful in conserving farmland that can still be actively farmed without major conflicts with nearby residential uses,
considerations such as prevailing winds and access need to be evaluated when locating homes and farmland as part of a conservationbased development.
9
Data supporting this trend comes from a variety of sources including the National Young Farmers
Educational Association, Sustainable Agriculture Research (www.sare.org) and the Minnesota Farm Guide
(www.minesotafarmguide.com).
7-34
To support youth farming initiatives in Hortonia, the Town could:
•
Establish a local agriculture committee to offer area farmers (younger and others) a network for
support, insight, and assistance.
•
Encourage efforts of the Wisconsin Farm Bureau and area schools to educate youth about careers
in farming.
WATER QUALITY PROTECTION
During the SWOT Exercise (refer to Chapter 2 for more information), some participants expressed
concern over the water quality in Hortonia. Residents expressed the following concerns:
•
Increased runoff from new developments:10 As residential development occurs, the demands
placed on the natural environment increases. Every new house, driveway and patio increases the
impervious surface on the Town, thus limiting the places water can go. Normally, rainwater will
be absorbed into the soils by trees or other vegetation, filtering the water as it makes its journey to
lakes, streams, creeks, wetlands and the water table. When impervious surface is increased, the
water is no longer being filtered, but rather is going directly into the water source at a more rapid
rate. Streams fill more quickly and have a higher tendency for their banks to flood or worse. Steps
can be taken to protect water quality in new developments:
o
Revise the Hortonia Zoning Ordinance to restrict new development or construction
activities within all surface water riparian zones;
o
Utilize conservation subdivision techniques more to protect sensitive natural features
from development; and,
o
Expand landscaping requirements for tree planning and landscaping standards for
new and renovated parking lots, street right-of-way, and new subdivisions.
A positive correlation exists between the
percentage of impervious surface in a
watershed and surface water quality (see
graph). Stormwater runoff from
impervious surfaces such as roads and
roofs has an adverse effect on surface
waters. As the percentage of impervious
surfaces increases in a watershed, lakes
and streams experience greater
degradation from stormwater runoff.
According to the Center for Watershed
Protection (CWP) in Ellicott City,
Maryland, “More than 30 different
scientific studies have documented that
stream, lake, and wetland quality
SOURCE: Tom Schueler, Center for Watershed Protection, 1995.
declines sharply when impervious cover
in upstream watersheds exceeds 10%.” In 1999, CWP developed criteria that allowed local
governments and watershed organizations to predict the effects upon surface water quality resulting
10
Source: http://www.uwsp.edu/cnr/landcenter/pdffiles/EnvironmentalIndicatorFactSheet.pdf
7-35
from increases in impervious surfaces within a watershed. CWP classified watersheds into three
groups, each defined by the percentage of impervious surface within the watershed.
•
Agriculture farming practices: Livestock facilities located near shoreland areas and wetlands
have the potential to create water quality problems. Existing farmers are encouraged to work with
DATCP, UW–Extension, WDNR and the Outagamie County Land & Water Conservation
Department to protect groundwater resources. The Outagamie County Land & Water
Conservation Department provides technical assistance to property with water resource problems
and an animal waste storage facility-closing program.
•
Fertilizers, Herbicides, and Pesticides: Nitrate, most of it from fertilizers, is the most common
chemical contaminant found in Wisconsin groundwater.11 Upwards of 95% of the chemicals
applied to residential lawns are washed into storm drains/ditches and then into nearby creeks and
streams following rain events. In northern climates, turf grass is only capable of ingesting
fertilizer during the fall. Fertilizers applied during spring and summer months contribute to algae
blooms and eutrophication of lakes and streams (the annual “greening” of Lake Winnebago is a
result of the over use of commercial and residential fertilizers). Most herbicides, even those that
claim to be focused on specific “weeds” or “pests,” kill healthy aquatic and terrestrial organisms
and are suspected causal factors in many autoimmune and endocrine illnesses in humans and pets.
By reducing or eliminating the amount of pesticides and herbicides applied to lawns, and
fertilizing once per year during the month of September, Hortonia residents can greatly improve
water quality and aquatic habitat in local lakes and streams.
The Implementation Chapter includes a variety of tools, best management practices, and funding
courses to aid in the reduction of groundwater protection in the Town of Hortonia.
The development of the Agricultural, Natural and Cultural Resources Chapter required coordination
with all of the required plan chapters. For example, when considering economic development
strategies the limitations presented by natural resources (e.g. wetlands, floodplains) is important to
consider as are the benefits natural areas provide to the local quality of living. Below is a description
of the critical issues addressed with respect to the Transportation, Land Use, Housing and
Intergovernmental Cooperation Chapters. These chapters are profiled because their coordination with
the Agricultural, Natural and Cultural Resources Chapter is critical to the success of the plan.
TRANSPORTATION
The Transportation Chapter discuses the need to provide trails through the community to expand
access to natural areas and nearby communities.
LAND USE
Residents of the Town have clearly indicated that the preservation of natural resources is a priority.
As a result, when the Future Land Use Maps were developed, special consideration was given to this
priority and environmental corridors are provided. In addition, the goals, objectives and policies
include provisions to protect floodplains, wetlands, and other natural resources.
11
SOURCE: http://www.aqua.wisc.edu/waterlibrary/facts.asp
7-36
HOUSING
Housing, if not carefully located and planned for, can have a severe impact on natural resources and
farming operations. Housing development can fragment farming operations and wildlife habitat areas.
Additional traffic, people and services associated with housing development can quickly destroy rural
character. The Town of Hortonia would like to encourage development within its boundaries
primarily were services are already available. This strategy for housing development is reflected in
the Future Land Use Maps. Moreover, the Housing Chapter and this chapter consider the benefits
conservation subdivision development techniques provide for integrating housing development with
natural resource areas and farmlands.
As is discussed in the Natural Resources and Environmental Concerns portion of this chapter, to
protect local natural resources (e.g. Wolf River, native species, etc.), the Town needs to take a direct
and active role in preservation efforts. To be successful, coordination with the WDNR, Outagamie
County, and area landowners is needed.
The policies, goals and objectives for Agricultural, Natural and Cultural Resources can be found in
the Implementation Chapter (Chapter 12).
7-37
8.0
Introduction
To learn more about economic
development, also see these chapters…
Based on resident comments received during the
development of this plan (refer to value statements in
• Information about zoning is provided in the
Chapter 1 and SWOT results in Chapter 2), economic
Land Use Chapter.
development is not a major priority for Hortonia.
• Recommended development patterns are
Generally, participants in the planning process expressed
shown on the Future Land Use Maps.
little interest in seeing any significant increase in
business development in Hortonia. Rather, residents are
more interested in seeing these types of land uses occur within Hortonville and New London - where
infrastructure and services are available. In fact, during the planning process many residents said they
were minutes from these two communities (as well as Oshkosh and the Fox Cities) – making services,
churches, shopping, clinics and jobs easily available. Simply stated, residents like living close to these
urban areas, but not within them. This approach allows the Town to retain its rural character while the
cities and villages nearby continue to see their urban areas flourish.
According to Wisconsin’s Comprehensive Planning Law, the purpose of the Economic Development
Chapter is to promote the stabilization, retention and expansion of the economic base, and quality
employment opportunities. To address this, this chapter includes:
•
•
•
•
Highlights of the labor force information from Chapter 3;
An assessment of strengths and weaknesses with respect to attracting and retaining business and
industry;
An overview of programs that deal with environmentally contaminated sites for commercial or
industrial uses; and,
A list of organizations providing economic development programs at the county, regional, state and
federal levels.
In terms of the 14 state comprehensive planning goals, those listed below relate specifically to planning
for economic development in Hortonia (for several of these, coordination with the Hortonville and New
London is needed):
•
•
•
•
Encouragement of coordination and cooperation among nearby units of government.
Providing adequate infrastructure and public services and an adequate supply of developable land to
meet existing and future market demand for residential, commercial and industrial uses.
Promoting the expansion or stabilization of the current economic base and the creation of a range of
employment opportunities at the state, regional and local levels.
Economic Development Vision
In 2025, economic activity in Hortonia focuses primarily on agriculture, including dairy and
non-dairy operations, as well as niche and organic farming. Some residents have started
home occupations. Development near the intersection of STH 45 and STH 15 is an
important area of local economic activity. For the most part, residents continue to work
outside of the Town in nearby communities that are easily accessible via STH 45 and STH
15.
Town of Hortonia Comprehensive Plan - Economic Development Chapter
8-1
Labor Force and Economic Base
The Community Profile Chapter (3) provided a detailed analysis of Hortonia and Outagamie County’s
economy and the labor force. Highlights from that chapter include:
•
Local workers are very mobile. Residents take advantage of highway access and their proximity to
nearby communities to commute to employment.
•
Income. Median household, median family, and per
capita income reported by Hortonia residents (refer to
Table 8) is significantly higher than Outagamie
County and Wisconsin State averages. This suggests
residents have disposable income available to spend.
•
Occupational Types. The census data reveals that
about a third of Town residents are employed in
manufacturing positions. Manufacturing jobs typically
pay more than other types of employment. The second
largest reported employment category was in
education, healthcare, and social service industries.
While these fields may not receive as much pay as
other professions, they do generally receive highly
desirable benefit and retirement packages.
•
Educational Attainment. Hortonia residents have
educational attainment rates higher than Outagamie
County, the State of Wisconsin and several nearby
towns. This is important because it indicates high
earnings potential among Hortonia’s workforce.
Current Business Inventory and
Business Environments
Business development in the Town of Hortonia is difficult
to categorize. Not only is there variety of businesses, but
also individual operations provide a variety of services.
Business activities are concentrated primarily along STH
45 and STH 15 and include:
•
•
•
•
•
•
•
•
Old 45 Archery
Bolssen’s Auto Sales and Service
Carew Concrete and Supply
Carroll Fulmer
Family Floors
Frick Ford
Wolfraths Nursery and Landscaping
3 Residential Group Homes (See Housing Chapter for more information)
8-2
Of course, these businesses are in addition to local farm businesses (discussed later in this chapter) and
the non-metallic mine in operation east of STH 45. All business development in Hortonia requires
approval by the Town in accordance with the Hortonia Zoning Ordinance.
To understand the economy of Hortonia, it is helpful to
classify the local economy. In small communities (e.g. less
than 10,000 people) generally there are five types of
economies1:
1. Resource-Based Economy. This type of economy is
characterized by geographic isolation (e.g. far away
from other cities / metro areas with limited interstate
access). These communities often have an aging
population base and lack of opportunities for higher
education and local employment. Many central
Wisconsin communities fall into this category.
2. Industrial Economy. This type of economy is
characterized by dependence on yesterday’s economic
base. Often a community of this type has a single
manufacturing or industrial operation that sustains the
vast majority of residents.
3. Metropolitanizing Economy. These communities are
experiencing a high amount of residential
development which causes concern about decreasing
land supplies, loss of community identity, maintaining
small town character, and avoiding becoming a
“bedroom community.”
4. Dependent Economy. Usually an unincorporated (e.g.
township) area outside of the suburban ring of
development. The economic vitality of this
community depends on the economic success of the
larger adjacent/nearby community (e.g. Appleton).
The primary challenge is handling local residential
development pressure.
5. Lifestyle Economy. These communities include
university towns, small communities with military
bases, and tourist destinations. Residents enjoy their
small community setting and quality of living, but are
concerned about their long-term dependency on a
single economic source.
TOP: Sara Lee Foods Facility
MIDDLE: Family Floors
BOTTOM: Frick Ford
1
Randall Gross, Embracing Change in Small Communities, APA National Conference, March 2005.
8-3
Based on these descriptions of small town
economies, the Town of Hortonia is best described
as a dependent economy. The Town has relatively
little business development. Those businesses that
do exist are situated primarily along Highways 15
and 45. Agriculture is the primary economic
activity in the Town. Residential development is a
primary challenge.
Bolssen’s Auto Sales & Services
Costs and Benefits of Economic Development
The Town of Hortonia has several positive attributes to offer potential businesses:
•
•
•
•
•
•
A great location that is accessible to many nearby communities;
Properties with highway frontage on both USH 45 and STH 15;
An attractive and safe community atmosphere that provides for a high quality of living;
Quality school districts that serve the area;
Reasonable tax rates; and,
High-income averages compared to surrounding communities – suggesting disposable income to
support non-essential businesses (e.g. entertainment, restaurants, and specialty shops).
While the Town of Hortonia enjoys advantages, there are several challenges that must be addressed if
seeking to attract new businesses and industry. In particular:
•
•
•
•
•
•
•
•
•
Residents can easily drive to nearby communities to purchase services and products;
Similarly, most residents travel outside of the Town to work and find shopping, dining and
entertainment choices conveniently located near their place of employment;
There is a lack of businesses catering to people’s everyday needs which further entices residents to
drive to other communities for shopping;
Community sewer and water is not available;
Competition from existing development centers
limits the market for businesses in Hortonia;
Limited Town population growth is projected.
This will ensure that the market base remains
about the same size over the planning period,
which will limit the growth potential of existing
businesses and the market demand for additional
businesses;
Opposition to development from Town residents
who perceive business uses as a threat to the
Town’s rural character and quality of living;
Non-Metallic Mining Operation off STH 45
There are few areas for business development
due to wetlands, floodplains, and WisDOT
access limitations on State highways that require access to be provided via Town roads (and frontage
roads) rather than have direct driveway access to State highways.
The 35-acre parcel minimum also is a challenge to business development, as many business uses
desire smaller parcels.
8-4
Local Economic Development Desires
Each community has a different vision for economic activity. Hortonia, like other townships located on
the edge of a larger city, is more focused on offering a quality residential setting, preserving natural
resources and sustaining remaining agricultural
operations than expanding business and industry.
Two different planning tools were used to
ascertain local economic desires and expectations
for 2025:
1. Ideas and comments collected during the
Kick-Off and Vision meetings facilitated by
OMNNI Associates in February and March of
2005.
2. Community-wide survey results.
LOCAL VISIONS FOR ECONOMIC DEVELOPMENT
Business development opportunities were not stressed during the SWOT exercise conducted as part of the
Kick-Off Meeting. They were not identified as a strength, weakness, opportunity or threat facing the
Town. Generally speaking, there just wasn’t much interest in business development. Preservation of
agriculture, however, was identified as a strength and opportunity for the Town.
During the visioning session held March 16, 2005, some residents indicated new business development,
particularly near the New London at the intersection of STH 45 and STH 15, was an opportunity for
Hortonia. Others said home-based businesses and services like day care were desired.
COMMUNITY SURVEY RESULTS
As part of the effort to develop this plan, a survey was distributed in the fall of 2003. Results from the
2003 survey indicate residents felt commercial and industrial growth should be concentrated around STH
15 and STH 45. Eighty percent of residents felt commercial areas should be concentrated around STH 15
and STH 45, and 73% felt industrial growth should occur in these highway locations. In general, 75% of
residents indicated only slight support for business development within the Town.
8-5
Economic Development Opportunities
During the planning process, a few economic development opportunities were identified in Hortonia. This
section highlights those opportunities. Supporting goals, objectives and policies are provided in the
Economic Development section of the Implementation Chapter that could help Hortonia capitalize on its
most desired economic opportunities.
NEW ECONOMIC OPPORTUNITY STUDY RECOMMENDATIONS 2
In October 2004, Northstar Economics, Inc. conducted an economic opportunity study to understand
deteriorating employment trends in certain industry sectors within Northeast Wisconsin.3 The study was
based on the premise that the model for future economic prosperity in the region has changed. In the
previous model (Old Economy), the production of goods was based upon proximity to raw materials and
limited distribution channels. Labor chased growing businesses. The new model (New Economy) is based
on ideas, creativity, and innovation. Now successful businesses chase a scarcity of skilled workers.
Skilled workers are attracted to places with high qualities of life and rich cultural and recreational
environments.
Whereas the Old Economy is based upon a competitive race to the bottom to secure and hold markets, the
New Economy is based on knowledge and abundance theory – the concept that collaboration will grow
the economy sufficiently to serve everyone. A skilled workforce is imperative in this new economic
model.
The following industry clusters were identified in the NEW Economic Opportunity Study as areas that
should be expanded and built in the region:
* BioRefinery/Paper Products
* Insurance Products
* Nutraceuticals (e.g. vitamins, supplements, bioproducts)
* Healthcare
* Maritime Vessels & Equipment
* Specialty Crops
* Education & Workforce Training Services
* Printing and Publishing
* Production Technology
* Machine Tool Design
* BioMass/Agriculture/Food Processing
* Tourism
* Automated Manufacturing Technology
* New Economy Created Products
These recommendations for Northeast Wisconsin encompass Outagamie County which, in turn, includes
Hortonia. The recommended industry clusters may be translated into new business ventures in the Town.
Moreover, the specialty crop farming and tourism opportunities may be capitalized on locally by area
farmers, nature enthusiasts, and trail users.
2
Portions of this summary were obtained from the Northeast Wisconsin Economic Opportunity Study Executive
Summary, October 2004.
3
Northeast Wisconsin defined as Brown, Calumet, Door, Outagamie, Green Lake, Kewaunee, Manitowoc,
Marinette, Menominee, Oconto, Outagamie, Shawano, Sheboygan, Waupaca and Waushara Counties.
8-6
AGRICULTURE AND
ECONOMIC
DEVELOPMENT
As noted in Chapter 7
(Agricultural, Natural &
Cultural Resources), a
depressed farm
economy and growing
pressure from nonfarm
development has led to
increasing conflicts
over the use of
agricultural lands.
Fundamental to this
conflict is the demand
for rural housing and
recreational land, which
has resulted in
accelerated rates of
farmland conversion to
nonfarm uses. In an
attempt to slow the
conversion of farmland
to nonfarm uses, the
Illustration above shows that farmland in Outagamie County sold for residential development is
valued competitively with surrounding counties.
State passed the
SOURCE: Program on Agricultural and Technology Studies, 2002
Comprehensive
Planning Law in 1999
(and to guide overall land use decisions).
Outagamie County has been affected by residential development pressure and corresponding farmland
losses. As was mentioned earlier in this plan, the community surveys and participant comments at
meetings reveal support for agriculture and agriculture-related businesses. At the same time, however,
some local farmers and others expressed their concern about the long-term sustainability of farming. As
local farmers age, they choose to sell their land or simply stop their farming activities. Unfortunately,
there are relatively few young people that are becoming farmers in today’s economy. As a result, when
local farmers retire, they cannot always find young farmers to purchase additional farmland. Often, faced
with a need for retirement income, local farmers seem to have no choice but to sell their property for
development.
Between 1990 and 1997, Hortonia lost 3 of its 18 local dairy operations (refer to Table 21). The maps on
the next page reveal losses have continued since 1997 in Hortonia and across Northeast Wisconsin.4
4
Program on Agricultural and Technology Studies, University of Wisconsin-Madison, 1997
8-7
TABLE 24 DAIRY FARMS IN OUTAGAMIE COUNTY
Township
Hortonia
Dale
Ellington
Greenville
Liberty
1990
1997
18
36
62
29
16
% Change
15
21
37
21
9
-17%
-42%
-40%
-28%
-44%
SOURCE FOR TABLE 21 & MAPS:
Program on Agricultural Technology:
http://www.pats.wisc.edu/
Notwithstanding these losses, agriculture is still very much an important economic force in Outagamie
County. In fact, agriculture provides jobs for 15,470 residents, or 14% of the overall County workforce,
while accounting for $683.6 million in the County’s total economic income. Every new job generated in
agriculture creates an additional 1.1 jobs in Outagamie County. Any loses in farming have an impact on
the community and the entire County.5
5
SOURCE: http://www.uwex.edu/ces/ag/wisag/documents/Outagamie.pdf
8-8
The Agricultural, Natural and Cultural Resources Chapter
highlighted several strategies for sustaining agriculture in the
Town over the next 20 years and beyond. Given the
importance of agriculture to the local economy, this section
offers some additional opportunities available to local
farmers.
•
Sell products directly to customers at a centralized
farmer’s market. As of 2002, 6.9% of Outagamie
farmers sold their products directly to consumers. This is
only slightly higher than the State average of 6.4%.6 To
further expand this market opportunity local farmers
should consider selling their goods at the farmers
markets in Appleton, which serves the greater region, or
coordinate with neighboring communities to establish a
local market.
•
Develop a historical and/or niche farm tour to
showcase local farm operations, farm products and
Century Farms. This tour should be included on any
future Hortonia website and also be the subject of a
brochure available through local tourism associations.
•
Participate in seminars and training hosted by the
UW-Extension to learn about tools available to farmers
to accommodate development requests (e.g. transfer and
purchase of development rights, zoning ordinance tools)
and other opportunities (e.g. the sale of farm by-products
for energy generation, organic farming opportunities,
niche farming opportunities, etc.).
•
Consider conversion to organic farming. As of 2002,
only 0.6% of Outagamie County’s agriculture was in
organic farming. This is less than overall Wisconsin
average (0.7%), but higher than the percentages in many
nearby counties (Door County – 0.5%; Winnebago –
0.1%; Washington – 0.5%; and Sheboygan – 0.4%).7
Calumet County farmers have more than double
Outagamie County’s agriculture production in organic
farming at 1.6%. Strong organic and specialty farm
markets are proving very profitable. Since 1990, the
organic food industry has grown 20% or more each year
and now constitutes an almost $8 billion industry. An
opportunity exists to capitalize on this growing market.
6
7
Images of Successful Farmers Markets from
Across Wisconsin
University of Wisconsin Extension, Center for Economic Development, 2002 Economic Census Data.
See Footnote # 5.
8-9
TOURISM
Two potential tourist markets exist in Hortonia:
1. Eco-Tourism. The Wolf River, Black Otter
Lake, hunting activities and planned trails
provide opportunities to bring nature
enthusiasts to the area that could spend
money in the community at local
restaurants, roadside farm stands and other
businesses. (Refer to the Transportation
Chapter for more information on bike and
trail route opportunities in Hortonia.)
Black Otter Lake
2. Agri-Tourism. Agricultural uses dominate
the landscape in Outagamie County. Given the strength of the agricultural economy, opportunities
exist to offer tourist activities related to area agriculture, including: farmer-for-a-day experiences,
rural bed & breakfasts, roadside stands, horse boarding and trail riding, pick-your-own produce
operations, corn mazes, pumpkin patches, wineries, cheese factories, and the like.
Locations for New Business Developments
SPECIALTY-ZONED AREAS
The Vision Exercise completed in March 2005, revealed that residents want to ensure that any
nonresidential development occurs in specialty-zoned areas. The Town of Hortonia has its own zoning
ordinance that includes districts to accommodate different land uses8. Locations for future business
development are identified on the Future Land Use Map. The most desirable location for business
development is along the STH 15 and STH 45 corridors, more particularly where these two roads meet
and possible new road development through this area.
ENVIRONMENTALLY CONTAMINATED SITES
Development efforts can sometimes encounter the challenge of
potentially contaminated properties, which are commonly referred to as
brownfields (see box at right). Brownfield sites vary in size, location,
age, and past use. A brownfield site can be a former corner gas station or
an empty manufacturing plant. There are an estimated 10,000
brownfields across Wisconsin. These sites pose a number of problems
for communities including:
•
•
•
•
The United States Environmental
Protection Agency (EPA) defines
brownfield sites as “With certain
legal exclusions and additions, the
term `brownfield site' means real
property, the expansion,
redevelopment, or reuse of which
may be complicated by the presence
or potential presence of a hazardous
substance, pollutant, or contaminant.”
Neighborhood deterioration and community blight;
Potential harm to human health and the environment;
Reduced tax revenue and economic growth; and
Attraction for vandalism, open dumping and other illegal activity.
8
Additional information about the zoning ordinance is included in the Land Use Chapter of this plan. In general, it
should be noted that there is little land in the Town zoned for business development.
8-10
The term "brownfield" was first used to distinguish developed land from unused suburban and rural land,
referred to as "greenfield" sites. The EPA, states, and municipalities believe that choosing brownfield
redevelopment over greenfield development yields several benefits for communities and for commerce.
Brownfield redevelopment encourages the cleanup of contaminated sites. This is the major goal of most
modern environmental regulations. The fewer the number of contaminated sites, the less the cumulative
impact to the environment. Another benefit of brownfield redevelopment is that it revitalizes urban areas.
(Many brownfields are centrally located in urban areas). This leads to another perceived benefit -- the
minimization of green space development. When brownfields are redeveloped or revitalized in urban
areas, less farmland on the urban fringe is developed, maintaining greenspace and reducing the need for
expanding infrastructure and utilities. Finally, when brownfields are redeveloped and new businesses
begin operating, these properties return to the tax base and provide jobs. This is a major financial
incentive for communities to encourage and develop programs for brownfield redevelopment.
Interested residents can search for properties in the Town of Hortonia that have been impacted by
environmental contamination (and have been reported) through the WDNR Bureau for Remediation and
Redevelopment Internet website tracking available at: www.dnr.state.wi.us/rr/brrts/index.htm. This
database tracks identified sites from first reporting through closure or no further action. Records are kept
in perpetuity regardless of whether or not contamination was actually found, the size of the incidence, and
whether or not the site has been cleaned.
The WDNR database lists four (4) properties in the Town of Hortonia. All sites are either closed because
remediation activity was completed or remediation activities were unnecessary.
Governments at all levels have recognized that brownfield redevelopment is an important issue.
Numerous programs have been created to encourage brownfield redevelopment including grants, loans,
and tax incentives. In the future, Hortonia should encourage landowners to pursue the clean up of any
brownfield site. Likewise, to minimize future environmental impacts, Hortonia will encourage
environmentally friendly business development that is properly permitted and regulated to protect the
area’s natural environment, particularly its groundwater resources.
Economic Development Tools, Programs, and Partners
CAPITAL IMPROVEMENTS PROGRAM (CIP)
Through a CIP, communities are able to responsibly plan for future improvements. As is recommended in
the Utilities and Community Facilities Chapter, Hortonia should seriously consider developing an
expanded CIP to help plan for community improvements that can support existing local businesses and
desirable new business opportunities. Improvements a CIP may be used to plan for include road
maintenance, Town facility improvements (e.g. Town Hall, Maintenance Garage), etc.
NORTHEAST WISCONSIN REGIONAL ECONOMIC PARTNERSHIP (NEWREP)
NEWREP was established in 2002 by former Governor Scott McCallum as a technology zone. It is one of
eight zones created throughout Wisconsin, each of which had $5 million in income tax credits to provide
as incentive to attract high-tech companies to the area and to help existing companies increase
productivity. The zones will be in effect through 2012. The current focus of NEWREP, based on the
results of the NEW Economic Opportunity Study completed in October 2004, is to foster collaboration
8-11
across all sectors in the region – business, labor, government, education, and healthcare – to support the
regional economy. Specifically, NEWREP is focused on:
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•
Maintaining and improving quality of life to retain skilled labor;
Collaborative economic development focused on a regional approach to economic growth;
Changing the social and cultural mindset to risk and collaboration for economic development;
Changing the regional image to reflect the New Economy; and,
Promoting industry cluster development.
OUTAGAMIE COUNTY UW-EXTENSION
Through the Outagamie County Office of the University of Wisconsin-Extension, the Outagamie County
Community Development Educator and Agriculture Educator provide research and educational materials
for government and local businesses. This information can be very valuable to individuals considering
business/agriculture operation development and expansion in Hortonia.
STATE AGENCIES/PROGRAMS
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Wisconsin Department of Commerce – www.commerce.state.wi.us: This department is the State’s
primary agency for delivery of integrated services to businesses.
Wisconsin Department of Transportation – www.dot.state.wi.us: The Office of Disadvantaged
Business Enterprise Programs encourages firms owned by disadvantaged individuals to participate in
all federal and State transportation facility contracts.
Forward Wisconsin – www.forwardwi.com: Forward Wisconsin markets outside Wisconsin to attract
new businesses, jobs, and increase State economic activity.
Department of Workforce Development – www.dwd.state.wi.us: This department builds and
strengthens Wisconsin’s workforce by providing job services, training and employment assistance,
and helping employers find necessary workers.
Wisconsin Small Business Development Centers – www.uwex.edu/sbdc: These centers help ensure
the State’s economic health and stability. They offer formative business education, counseling, and
technology training.
Wisconsin Youth Apprenticeship Program helps businesses prepare future workers and is an integral
part of the State Department of Workforce Development's workforce training strategy. Youth
apprenticeship is a rigorous two-year elective program for high school juniors and seniors that
combine academic and technical classroom instruction and on-the-job training from mentors.
Dairy 2020 Initiative is a State, business, and education partnership that works to enhance the
competitive edge of the Wisconsin dairy industry.
Wisconsin Women's Business Initiative Corporation - www.wwbic.com: This statewide economic
development organization offers quality business workshops and trainings, one-on-one business
assistance, business incubation programs, a variety of micro loan programs and individual
development accounts.
FEDERAL AGENCIES/PROGRAMS
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Department of Agriculture Rural Development Administration – www.rurdev.usda.gov
U.S. Small Business Administration – www.sba.gov: provides financial, technical and management
assistance to help Americans start, run and grow their businesses.
U.S. Department of Commerce – www.doc.gov
U.S. Department of Transportation – www.dot.gov
8-12
Economic Development Issues & Concerns
RESIDENTIAL DEVELOPMENT AS ECONOMIC DEVELOPMENT
Residential development is a growing source of taxable income for the Town, as such, economic
development is often related to residential development. However, to a much greater degree than
commercial, industrial and agricultural development, housing requires services to accommodate resident
needs. These services include: schools, parks, trails, public safety, roads and associated maintenance
(including snowplowing). As a result, residential development is not a long-term strategy to decrease
local tax rates. In fact, Hortonia tax rates have steadily increased over the years as development has
occurred.
A number of community studies have been completed across the country which compare tax revenue
generated by different land uses (e.g. commercial, industrial, single-family residential, multiple-family
residential, etc.) to the services they require. Study after study demonstrates that single-family residential
development routinely increases public costs by a larger amount than it increases tax revenue for local
governments that must provide those services. Commercial and industrial developments have a far more
positive balance relative to tax dollars paid and dollars expended on services.
The premier example of such a study in Wisconsin was completed by the Town of Dunn (Dane County)
9
in 1994. Subsequent studies rely on the Town of Dunn as a model in their efforts . The study revealed
that for every dollar in tax revenue collected by the Town of Dunn, $1.24 was required in local services
(including schools). The ratios for commercial and industrial uses were far more favorable (e.g. for every
$1 in tax revenues collected significantly less than $1 of service costs were required). The tax ratio was
most favorable for farmland and natural areas that required generally around $0.15 in services for each $1
in taxes collected. As a result of this study, the Town of Dunn estimates that residential development
costs taxpayers $1,060 in services for every $1,000 paid in property taxes. Farm and parkland only cost
$180 to service for the same $1,000 in taxes paid.
The Town of Dunn is similar to the Town of Hortonia, in that it is located near to a major employment
center (Madison vs. Fox Cities) and it is a community without municipal water and sewer. Other
communities in Wisconsin have completed similar studies10, but none in Outagamie County. The bottom
line in the Town of Dunn study (and similar studies completed more recently) is that houses cost more,
from a tax standpoint, than farmland and parks.
To be certain that local residential development does not negatively impact the local tax base over time, it
is important to ensure that residential tax dollars cover the costs of needed services. Hortonia supports the
idea that new residential development should pay a fair and proportionate share of its service costs and
complete necessary studies to adequately gauge their impact on traffic and schools. To achieve this,
impact fees (compliant with Act 477) can be used to require that new development pay a fair and
equitable share of road improvement and park costs. However, even this is not a permanent solution
because impact fees are only collected as long as new development continues to occur. If new
development stops or slows significantly, revenue generated from impact fees will decrease or disappear.
In this situation, tax money must be used to pay for services.
9
Additional Information about the Town of Dunn Community Services Study is available on-line at
www.town.dunn.wi.us.
10
The Village of McFarland estimates that new home building costs all village taxpayers an additional $30 for each
$1 million of value built.
8-13
To make informed land use decisions, the Town must be provided with the full costs and benefits of new
development. Just as Environmental Impact Statements allow for an understanding of the effects of
building projects on environmental resources, Property Tax Impact Statements help decision-makers to
assess the full costs and benefits of new development. Property Tax Impact Statements estimate the
additional costs of providing and servicing schools, roads, fire, police, water, sewer and other public
services that will be required for each new development. With a Property Tax Impact Statement, decisionmakers will know up-front what the Town will be paying for and will be able to decide if a development
is beneficial or detrimental to Hortonia from a financial standpoint. These statements may be prepared by
a developer, or the Town could possibly contract with an independent analyst, the cost of which would be
paid by the developer.
RESPECTING RURAL CHARACTER
The visions in preceding chapters highlighted the need to preserve natural features, maintain farmland,
and continue to offer a quality rural living environment. Accordingly, it is important that economic
development respect these visions by being of a smaller scale. Intensive industry (with potential pollution
concerns) and large commercial establishments (e.g. big box stores, strip malls, etc.) are not consistent
with this image.
While a limited number of new businesses may be established in Hortonia, any new business must be
appropriately located to minimize potential conflicts with residential areas (e.g. near existing business
development, along highway corridors, etc.). Furthermore, new business development must exist in
harmony with the rural setting and respect the Town’s zoning and design standards.
To further protect the rural landscape from development, the Town may want to coordinate with
Outagamie County to consider opportunities for purchase and transfer of development rights programs.
These types of programs are discussed more in the Agricultural, Natural and Cultural Resources Chapter.
SPRAWL
Sprawling residential and commercial development patterns are a
concern to residents of Hortonia.
The new 45 by-pass and future plans for STH 15 may increase
pressure for development along and near these corridors. However,
just because these roadways are developed/expanded, the Town is
not required to approve new commercial development.
Commercial development sprawl – characterized by the lining of a
road corridor with business uses in otherwise natural, open and
farm areas – is of great concern because it has the potential to:
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Detract from rural character;
Blur community identity so that passing motorists will not
know when they are in the Town of Hortonia or the City of
New London; and,
Slow traffic thereby reducing the effectiveness of these
highway routes for moving people.
By retaining open, undeveloped lands along these corridors,
Hortonia can help to maintain the safety and function of these
WHAT IS RURAL SPRAWL?
“Sprawl” usually refers to development with
negative effects such as loss of agricultural
land, open space, and wildlife habitat. Sprawl is
often equated directly with growth. That is, as
population increases in an area or as city limits
expand to accommodate growth, an area is
considered to be sprawling (National
Geographic, November 1999 Issue).
One of the strongest indicators of sprawl is
increased traffic. As a result, auto-dependent
development is considered to be sprawl.
Sprawling development is usually located on
the urban fringe, at the edge of an urban area.
Sprawl is often considered to be “low-density”
development, though how low is generally not
defined. Since “low” is a relative term, even
when low-density is defined, it is not
standardized and ranges significantly (from 1
units per acre to 1 unit per 40 acres).
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corridors in the long-term. To explain, rather than line corridors with development (including associated
driveways, signage, frontage roads, and stop lights), large undeveloped stretches allow motorists to
efficiently pass through the area without potential conflicts from turning traffic. This rationale is why the
DOT restricts direct access to important thru routes like highways 45 and 15. The Town can prevent strip
development and effectively mange development pressure along these corridors by making a commitment
to enforcing the pattern of development illustrated on the Future Land Use Maps.
With respect to sprawl and residential development, there is concern that scattered residential
subdivisions will increase the potential for conflicts with agricultural uses. As a result, farmers may face
complaints from neighbors when pursing routine agricultural practices (e.g. planting, fertilizing, watering,
harvesting, etc.). Scattered residential uses also have the potential to increase community service costs
related to: school bussing, road plowing, road maintenance, garbage collection, etc. As a general concern,
sprawling residential development patterns also increase automobile dependency to get to work, shopping
and other destinations. Concentrated areas of development (as opposed to areas across the entire
community) can offer residents opportunities to walk or bicycle to destinations. This approach can also
benefit outlying agricultural areas by buffering farms from development pressures.
To address concerns about sprawl, careful consideration was given to appropriate locations for business
and residential development when preparing the Future Land Use Maps presented later in this plan.
The Economic Development Chapter most directly impacts the Land Use, Transportation, Housing, and
Utilities and Community Facilities Chapters. Therefore, it is important that the chapters are consistent.
LAND USE CHAPTER
Any new business development must be located in areas that the market will support. At the same time,
new development should not create a nuisance for neighboring properties or natural resources. These
criteria were carefully considered during the development of the Future Land Use Maps.
TRANSPORTATION CHAPTER
Any new business development should coordinate with Outagamie County and WisDOT to monitor
traffic flows to ensure that it is appropriately planned and sited to minimize its impact on adjacent
roadways. This may periodically require traffic studies to understand the impacts of proposed
developments. Pedestrian and bicycle access must also be considered.
HOUSING CHAPTER
Economic development in Hortonia (and surrounding communities) can bring visitors to the Town who
may decide its rural, scenic, country setting is an ideal location to live. Successful business development
can also result in jobs that bring people to the community looking for places to live near their place of
employment. Accordingly, areas for housing development, consistent with State growth projections, are
provided on the Future Land Use Maps.
8-15
UTILITIES & COMMUNITY FACILITIES
To support economic development, infrastructure (sanitary service, transportation, electricity,
communication, etc.) must be available to meet the needs of businesses. The Utilities and Community
Facilities Chapter discusses Hortonia’s existing and planned infrastructure to serve the needs of the
community, including economic interests.
The policies, goals and objectives for Economic Development can be found in the Implementation
Chapter (Chapter 12).
8-16
9.0
CURRENT LAND USE
Introduction
Land use is the central element of a
comprehensive plan. Previous chapters have
discussed:
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Projected population growth;
The quality housing available in the Town
and potential future housing needs;
Transportation network challenges with
increasing population growth;
Available utilities and community
facilities;
Local business choices and economic
growth opportunities; and,
Hortonia’s abundant natural resources.
Above: 57 acres of Farmland for Sale in Hortonia. This picture
is of concern to residents who want to see farmland and open
areas retained. As zoned, these 57 acres could accommodate
1 house (35-acre minimum), or be rezoned to allow for a
subdivision with 1 home per 3 acres. Is this rural? Is this the
desired future of Hortonia?
This chapter assesses land use trends by pulling
together the recommendations from the
previous chapters. Land Use information is divided into two chapters in this plan. This chapter discusses
current land uses, regulations, trends and opportunities. The next chapter discusses future development
patterns, community design standards and coordination with other required plan chapters. Chapter 10
ends with the Future Land Use Maps and a discussion of how they were created and how they are to be
used.
Of the 14 local planning goals provided in Wisconsin’s Comprehensive Planning Law, Hortonia believes
that the goals listed below specifically relate to planning for land use:
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Encouragement of neighborhood designs that support a range of transportation choices.
Protection of natural areas, including wetlands, wildlife habitats, lakes, woodlands, open space and
groundwater resources.
Protection of environmentally productive areas.
Encouragement of land uses, densities and regulations that promote efficient development patterns
and relatively low municipal, state governmental and utility costs.
Preservation of cultural, historical and archaeological sites.
Providing adequate infrastructure, public services and an adequate supply of developable land to meet
existing and future market demand for residential, commercial and industrial uses.
Balancing individual property rights with community interests and goals.
Planning and development of land uses that create or preserve varied and unique urban and rural
communities.
Town of Hortonia Comprehensive Plan – Current Land Use Chapter
9-1
To understand the character of the Town of Hortonia, one only needs to look at the landscape. From the
farm fields and rolling hills to the Wolf River, Hortonia is a beautiful community with wonderful views,
abundant wildlife and rural atmosphere. These attributes are echoed in the value statements presented in
Chapter 1 and the strengths, weaknesses, opportunities and threats listed in Chapter 2.
Current Land Use Inventory
The Current Land Use Map was created from information provided by the Town of Hortonia. The
description of the land use categories illustrated on the Current Land Use Map are as follows:
SINGLE-FAMILY RESIDENTIAL AND FARMSTEADS
Single-family residential homes and farmsteads (traditional family farmhouses – many of which are
historic) are spread throughout the Town. Single-family residential homes include those developed in
subdivisions and those created through land divisions. Information about the characteristics and quality of
the housing supply is available in Chapter 4.
MOBILE HOMES
A few mobile homes are found in the community and identified on the Current Land Use Map.
Additional mobile home park development is not expected in the community.
COMMERCIAL
Commercial land uses are concentrated primarily along STH 15. Chapter 8 profiles economic
development opportunities in Hortonia.
INDUSTRIAL
Industrial land uses, as shown on the Current Land Use Map, include light and heavy industrial activities.
Industrial properties are scattered throughout the Town. To learn more about area economic development
opportunities, refer to Chapter 8.
GOVERNMENT/INSTITUTIONAL
Government/Institutional uses include churches, medical clinics, parks and the Town Hall. For more
information about area churches refer to the Cultural Resources portion of Chapter 7. For information
about the local school districts refer to the Utilities and Community Facilities Chapter (6). For more
information about parks, see Chapters 6 and 7.
CEMETERIES
Cemetery locations are also illustrated on the Current Land Use Map. Cemeteries are discussed in the
Utilities and Community Facilities Chapter (6).
UTILITIES
Utilities include schools, parks, cellular towers, land owned by electric and natural gas providers, and
other service providers. More information is provided in Chapter 6.
AGRICULTURAL / UNDEVELOPED
Farmlands and undeveloped lands that are not currently farmed, but not covered by woodlands (i.e. shrub
covered, open space, vacant subdivision lots) fall into this category.
9-2
RECREATIONAL
The golf course located just outside of Hortonville, the WIOUWASH Trail, and some WDNR properties
along this Wolf River have this designation.
WOODS
Parcels with this designation include forested parcels and wooded wetlands along the Wolf River.
QUARRIES
Non-metallic mining operations located in the Town are shown on the Current Land Use Map. For more
information about non-metallic mining, please refer to the Agricultural, Natural and Cultural Resources
Chapter (7), as well as the Economic Development Chapter (8) for more information.
WATER FEATURES
Water features include ponds, rivers, streams, creeks, and drains. To learn more about surface water see to
Chapter 7.
The table below is a numerical breakdown of the current land uses in the Town. This table is required by
1999 WI Act 9, Wisconsin’s Comprehensive Planning Law. The net density (total number of dwelling
units divided by all residential acres) in the Town is .77 dwelling units/acre (389 housing units/506.39
acres).
TABLE 25
CURRENT LAND USE AMOUNT & INTENSITY
Land Use Type
Amount
% of Planning Area
(in acres)
(Town Limits)
Single-Family Residential
Mobile Homes
Utilities
Commercial
Industrial / Manufacturing
Cemeteries
Government/Institutional
Mining
Agriculture/Undeveloped
Farmsteads
Woodlands
Water
Recreational
Roads/Transportation
Total
506.39
8.34
7.56
29.22
48.95
2.80
5.02
160.82
6,468.43
196.60
3,769.40
633.69
170.27
628.65
4.00%
0.07%
0.06%
0.23%
0.39%
0.02%
0.04%
1.27%
51.19%
1.56%
29.83%
5.01%
1.35%
4.98%
12,636.14
100%
9-3
9-4
Land Use and Development Regulations
TOWN ZONING ORDINANCE
The Town of Hortonia has adopted and enforces its own local zoning ordinance. The zoning ordinance
organizes the community into different districts. Within each district specific uses are permitted subject to
certain requirements.
Hortonia’s zoning code follows a traditional Euclidean1 model that seeks to segregate uses by type and
establishes dimensional requirements related to lot size, setbacks and building height. As new uses are
created over time, they are listed specifically in the zones in which they are permitted. To be effective,
this type of code must list every possible use and establish a zone in which that use would be appropriate.
Euclidean codes are based on a philosophy that separation of uses will create a safer, healthier
environment.
Table 23 provides a breakdown of the different zoning districts found in the Town of Hortonia. For
additional information refer to the Town of Hortonia Zoning Ordinance.
TABLE 26
TOWN OF HORTONIA ZONING DISTRICTS
DISTRICT
MINIMUM AREA
MINIMUM
FRONTAGE
FRONT
SETBACK
SIDE SETBACK
REAR
SETBACK
DWELLING
HEIGHT
35 Acres
None
100 Feet
50 Feet
25 Feet
Two times the
distance to the
nearest lot line.
7 Acres
250 Feet
100 Feet
50 Feet
50 Feet
35 Feet
R-1
Residential
District
3 Acres
200 feet, and a
minimum of 100
feet of direct
frontage on a public
road
100 Feet
50 Feet
50 Feet
35 Feet
M-H
Mobile Home
District
10 Acres and 20,000
square feet for each
site
None
100 feet for the
park and 50
feet for the
sites
100 feet for the
park and 25 feet
for the sites
100 feet for the
park and 25 feet
for the sites
None
75 feet with public
sewer and 100 feet
without public
sewer
100 Feet
10 Feet
25 Feet
50 Feet
100 Feet
50 Feet
10 Feet
10 Feet
60 Feet
A-1
Prime
Agriculture
District
RE
Rural Estate
District
C-1
Commercial
District
I
Industrial
District
15,000 square feet for
lot with public sewer
and 30,000 for lot
without public sewer
20,000 square feet for
lot with public sewer
and 30,000 for lot
without public sewer
SOURCE: Town of Hortonia Zoning Ordinance
1
Reference to Euclid vs. Amber Realty Company, 1926 U.S. Supreme Court Decision, which serves as the
foundation for zoning practice in the United States.
9-5
A-1, PRIME AGRICULTURAL DISTRICT
This district is intended to preserve productive
agricultural lands for food and fiber production.
Permitted uses include beekeeping, commercial
feedlots involving less than 300 animal units, dairying,
egg production, floriculture, fish or fur farming, forest
and game management, grazing, livestock raising,
orchards, plant greenhouses and nurseries, poultry
raising involving less than 10 animal units, raising of
grain, grass, mint, and seed crops, raising of fruits, nuts
and berries, sod farming, forest and game management,
greenhouses, private nature trails and walks, flood
protection, movement of water and stream bank
protection, wilderness and wildlife preservation areas,
residences associated with agriculture and pre-existing
single-family dwellings constructed prior to 1989.
35-Acre Requirement History in Hortonia
The Town of Hortonia’s 35-acre requirement for land
divisions in the A-1 District was passed in the mid1970s. Town Board members at the time (local
farmers) believed this would be an effective tool to
preserve their agricultural character and help them to
qualify for tax credits. The zoning law was not passed
without controversy. Thirty years later, the 35-acre
minimum is still of concern - even to some of the same
farmers who originally passed the law. Many of these
same farmers now want to sell their land for
development to finance their retirement. If smaller lot
sizes were permitted, more housing units could be built
and their profit margin could potentially be greater.
RE, RURAL ESTATE DISTRICT
This district is intended to maintain open land areas predominately devoted to residential use but provide
opportunities for residents to engage in other rural uses secondary to the property’s principal use as
residential. Permitted uses include single-family detached dwelling, public and semi-public non-profit
institutional uses including a church, school, museum and uses of a similar nature, park and preserve.
R-1, RESIDENTIAL DISTRICT
The Residential District is intended to provide for low-density single-family residential development
appropriate to the Town’s rural character. Permitted uses include single-family detached dwellings, public
parks and playgrounds, and community based residential facilities. Conditional uses permitted in this
district include duplex and multiple family dwellings.
MH, MOBILE HOME DISTRICT
The purpose of this district is to provide areas within the Town for mobile homes in mobile home parks.
Permitted uses include mobile homes, park recreational facilities including recreation center, court games
and the like limited to use by park residents, and a park office.
C-1, COMMERCIAL DISTRICT
The commercial district accommodates those retail and service establishments of a local nature. It is the
intent of the Town that commercial development be located along the USH 45 corridor. Permitted uses
include retail outlets including the sale of food, liquor, art or photographic supplies, printing, books, or
stationary, sundries or notions, jewelry, luggage, florist or gifts, antiques, drugs, pets, home furnishings
and appliances, sporting goods or hobbies, automobile accessories and parts, hardware, paint and
wallpaper, garden supplies and nurseries, music stores, thrift shops, and clothing stores.
Permitted service establishments include barber and beauty shops, shoe repair, laundry or dry cleaner,
appliance repair, photographic studio, dance studio, plumbing and heating sales and service, taxidermists,
tailors and sewing shops, optical sales and service, and retail centers.
Permitted business and professional offices include banks, insurance, real estate, travel agencies, medical
and dental clinics, attorneys office, engineering and other professional services. More permitted uses
include office equipment and supplies, taverns and restaurants, clubs and organizations, hotels and
9-6
motels, storage establishments, mortuary, convalescent homes and nursing homes, indoor commercial
recreational establishments including theaters, billiard parlors, arcades, bowling alleys, shooting ranges,
condenseries and creameries.
I, INDUSTRIAL DISTRICT
This district is intended to provide areas for industrial development. Industrial development shall be
located contiguous with or in close proximity to the Village of Hortonville or City of New London.
Permitted uses include wholesale, warehouse and building supply establishments, automobile, boat,
construction equipment, and farm implement sales and service, transportation terminals and distribution
centers, building contractors and storage yard, agricultural related uses including feedmills and co-ops,
printing and publishing establishments, manufacturing uses, commercial greenhouses, bottling, packaging
and laboratories.
TOWN ZONING ORDINANCE ISSUES AND CONCERNS
In reviewing the Town of Hortonia Zoning Ordinance, the following items were identified as potential
areas of concern.
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RE District. It is sometime better to spell out what are exactly permitted uses, instead of stating
“permitted accessory signs 1 through 3 in the A-1 Prime Agricultural District.” This is because
any changes in the A-1 district can have a “ripple” effect throughout the ordinance, creating some
unintended consequences.
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R-1 District. The ordinance should be revised to permit community-based residential facilities
(i.e. group homes) by conditional use permit in this district (rather than by right as they are
currently allowed).
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C-1 District. There are many permitted uses in this district. The Town may wish to revisit the list
of permitted uses and revise as needed to ensure that allowable uses are compatible with the rural,
agricultural character of the community.
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I-District. The industrial district does not include any conditional uses. The Town should consider
moving some of the permitted uses to conditional uses to ensure proper conditions are met in this
district.
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The ordinance lacks provisions for landscaping, signage and outdoor lighting. Requirements
should be considered, particularly once STH 15 is realigned.
•
The ordinance should be expanded to provide clearer provisions for the establishment of
accessory and home-based businesses. This is consistent with the strategy described in the
Economic Development Chapter of this plan.
In comparing the Town of Hortonia Zoning Map to the Current Land Use Map, several interesting
anomolies were noted. Specifically, it was found that the quarry site was in fact zoned R-1,
Residential. Similarly, some commercial / industrial uses in the northwest corner of the Town (near
New London) are also zoned R-1, Residential. The Town should consider rectifying this situation by
initiating zoning proceedings to more appropriate districts. With respect to the Quarry, the Town may
even want to consider developoing a new zoning district – Mineral Extraction – to address this
particular land use.
9-7
SUBDIVISION REGULATIONS
In addition to the Town Zoning Ordinance,
Hortonia has a Town Subdivision Ordinance.
The purpose of a Town subdivision ordinance
is to regulate and control the division of land
to:
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Further the orderly layout and use of land;
Prevent the overcrowding of land;
Lesson the congestions on streets and
Entrance to Falling Wings Subdivision – Good example of the use of
highways;
native landscaping to reflect rural character.
Facilitate adequate provision for water,
sewage and other public improvements;
and,
Support the development pattern presented in the Future Land Use Maps.
A subdivision ordinance can include such elements as technical requirements, design standards for
plats and certified survey maps, and required improvements (i.e. stormwater detention, public and
private sewage, land dedication).
The Town of Hortonia Subdivision Ordinance specifically outlines procedures and definitions for
land division, technical requirements, lot design standards for plats and certified survey maps, and
required improvements (i.e. road location and design standards, frontage requirements, drainage, lot
size, shape and orientation, and land dedication). Many Towns adopt subdivision ordinances to more
closely control local land divisions. For example, some towns will adopt ordinances to require
conservation-based subdivision techniques in certain areas of the community. To obtain a copy of the
Town ordinance, contact the Town Hall.
What is Extraterritorial Zoning?
EXTRATERRITORIAL ZONING
Currently, extra-territorial zoning is not in effect in the
Town of Hortonia. There are no plans to establish extraterritorial zoning at this time. The process for adopting
an extraterritorial zoning ordinance is as follows:
An extraterritorial zoning ordinance
adopted by a municipality may regulate
the subdivision of land within the
extraterritorial jurisdiction of that
municipality (i.e. within 1.5 miles of a
Village and 3 miles of a City boundary).
The objective of extraterritorial jurisdiction
is to review land divisions that are
proposed beyond the municipality to
ensure street extensions, environmental
corridors, and parks are preserved to
provide efficient municipal growth without
having to annex extensive rural
development.
1. Joint Extraterritorial Zoning Committees must be
established for each participating community.
Specifically, a Joint Extraterritorial Zoning
Committee that includes three members from the City
of New London and three members from the Town of
Empire would need to be established. If Hortonville
were to establish extra-territorial zoning, a similar
committee consisting of three Town and three Village
members would need to be established.
2. An initial draft extraterritorial zoning ordinance is developed.
3. The initial draft extraterritorial ordinance must be reviewed by each Joint Extraterritorial Zoning
Committee. Each Joint Extraterritorial Zoning Committee will comment on the initial draft and a
second draft can then be produced.
9-8
4. A majority of each Joint Extraterritorial Zoning Committee must vote in favor of the proposed
regulations prior to setting a public hearing.
5. After the hearing, the City Council (or Village Board) adopts the regulations. The final adopted
ordinance for the extraterritorial area must also be approved by a majority of the Joint
Extraterritorial Zoning Committee members. Consequently, an Extraterritorial Zoning Ordinance
cannot be approved without at least one Town member vote.
Once in effect, the criteria for approving or denying extraterritorial zoning requests could
include:
1.
2.
3.
4.
5.
6.
7.
8.
9.
The location, nature, and size of the proposed use.
The size of the site in relation to the proposed use.
The location of the site with respect to existing or future road access.
The agricultural productivity of the lands involved and the acreage of productive agricultural land
to be converted to non-agricultural use by the proposed use.
The compatibility of the proposed use with existing uses on adjacent land.
a. The proposed use shall not force a significant change in accepted practices on
surrounding lands devoted to farm or forest use.
b. The proposed use shall not significantly increase the cost of accepted farm or forest
practices on lands devoted to farm or forest use.
The harmony of the proposed use with the future development of the district.
a. The proposed use shall not significantly increase the cost of accepted farm or forest
practices on lands devoted to farm or forest use.
b. Availability of adequate public facilities to accommodate the development shall either
presently exist or be provided within a reasonable time.
c. The provision of public facilities to accommodate development will not place an
unreasonable fiscal impact on the City or the Town.
Existing topography, drainage, soil types, and vegetative cover.
Whether development will result in undue water or air pollution, cause unreasonable soil erosion,
stormwater runoff, or have an unreasonably adverse effect on environmental corridors.
Compatibility with the Town of Hortonia Comprehensive Plan.
There are many potential benefits to approving an extraterritorial zoning ordinance, including:
•
•
•
•
•
•
Can provide for smoother transitions between rural and urban land uses.
Can reduce conflicting land uses, which can reduce citizen complaints and protect property
values.
Can help to promote intergovernmental cooperation and
What is Plat Review?
communication.
Can help to avoid multiple communications towers and
Extraterritorial plat review jurisdiction may
similar duplications.
be used by a municipality to regulate the
Can makes planning for roads, utilities, recreation facilities,
subdivision of land within the
etc. easier.
extraterritorial jurisdiction of that
Allows for coordination related to protection of sensitive
municipality (i.e. within 1.5 miles of a
areas and valued natural resources.
Village and 3 miles of a City boundary).
EXTRA-TERRITORIAL PLAT REVIEW
Neither New London nor Hortonville has extraterritorial plat
review authority at this time. Both communities have the ability
to adopt extra-territorial plat review authority (see box for
The objective of extraterritorial jurisdiction
is to review land divisions that are
proposed beyond the municipality to
ensure street extensions, environmental
corridors, and parks are preserved to
provide efficient municipal growth without
having to annex extensive rural
development.
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definition) without forming a joint committee or requiring any Town approval.
The Town will need to continue to work with New London and Hortonville to ensure growth patterns
are consistent with this plan.
Trends in Supply, Demand, and Price of Land
RESIDENTIAL DEVELOPMENT
Residential development covers approximately 4% of the land in the Town. From a tax base
standpoint, residential development accounts for almost all of the tax revenue generated in the Town
of Hortonia. These two important figures clearly illustrate that residential development is very
important to the Town. By far, most of the more than 1,100 people who live in the Town are very
happy with the quality residential choices available and want to see farming and rural-country living
continue as the primary land uses in the Town.
Official WDOA household projections through 2025 estimate an increase of 107 new households (to
a total of 494 households accommodating 1,357 residents). That translates into roughly 5 new singlefamily homes being constructed each year. The Town of Hortonia has experienced growth that
exceeds this rate. Given this information, it is likely that the actual number of new homes built in the
Town over the next 20 years will be greater than the official projections.
Looking at population projections in comparison to the Current Land Use Map, the following is
revealed:
•
•
If 35-acre parcels were used to meet expected growth – 3,745 acres would be converted from
farmland to housing.
If the Town rezoned land to accommodate traditional subdivision or conservation-based
development, land consumption could be decreased significantly. In fact, the same number of
residents could be accommodated on less than 350 acres of land!
FARMING
In the community survey and at the public meetings, residents expressed a strong desire to retain
farmland. Simultaneously, the local farming economy has continued to see the number of area farms
decrease. This can be attributed to diminished farm product returns, aging farmers seeking retirement
through land sales, and demand for rural housing. Simple economics also plays a key role in the loss
of farmland. Farmers have the choice to either rent their farmland or sell their land for several
thousand dollars an acre. Long-term agricultural uses are most likely to continue in the southernmost
reaches of the Township, where development pressures have not been as substantial. The continuation
of farmland in the Town will require dedicated farmers committed to farming.
Preservation of rural character is contingent upon successful efforts to retain farmland. The
Agricultural, Natural and Cultural Resources and Economic Development chapters highlight
strategies to be considered, including:
•
Encouraging landowners to pursue opportunities to partner with land trusts charged with
protection of natural areas and farmland;
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•
•
•
•
Requiring landowners to consider cluster and conservation-based development options to
preserve farmland;
Establishing an Agriculture Committee to minimize farmland conflicts through negotiation and
open communication;
Establishing networks, through the Agriculture Committee to connecting farmers who are
considering selling their land property with other farmers who would like to acquire additional
property; and,
Considering transfer and purchase of development rights program opportunities.
Other zoning related options to preserve farmland, beyond exclusive agricultural (35-acre minimum
lot size zoning) include:
Incentive Zoning (Density Bonus Incentives). Local units of governemt may use density bonsuses
as part of their development review and/or subdivision approval process. This approach assumes that
if specified critieria are met, then a proposed development would be approved with more use of a site
(such as more dwelling units per acre)
than would otherwise be permitted by
Example: Incentive Zoning (Density Bonus Incentives)
the community. That is, greater
development density would be allowed
The Town of Cedarburg in Ozaukee County has added terms to its
zoning ordinance that allows builders to create more lots than
if certain conditions are met. These
normally allowed in development based upon the developments
“density bonuses” are a form of
design and layout. To qualify for bonus lot consideration, all open
incentive that a communtiy can offer to
space must be contiguous and held in common. The maximum
a developer who does the kind of
number of bonus lots the Plan Commission and Town Board may
development that a community seeks.
award is one lot per 25 acres of development with a maximum of four
(4) bonus lots for any development. There is no guarantee of bonus
lots being granted, as the final discretion rests with the Plan
Commission and Town Board at the time the proposal is reviewed.
Density bonuses may be used to
achieve a wide array of community
objectives, such as preservation of
agriculture land, open space, and conservation of wetlands, water bodies, forests, meadows and other
natural features that the community values. A list of density bonsus criteria would need to be
incorporated into Hortonia’s subdivision, zoning, or other development review regulations. In
Wisconsin, the Town of Caledonia in Racine County and the Town of Cedarburg in Ozaukee County
use this form of incentive zoning.
Incentive Zoning (Density Bonus Incentives)
Benefits
•
•
Allows for the protection of environmentally sensitive
areas while providing development to occur on the
property
Does not impose any direct costs on the landowners
and developers
Limitations
•
•
•
Neighbors may oppose due to concerns of increased
density of development
May not be mandatory tool; thus there is little
assurance that desired project designs will be
implemented by developers
Can be difficult for local officials to enforce unless
bonus criteria are clearly spelled out in an ordinance or
policy document
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Overlay District. An overlay district is used to establish alternative land development requirements
within a specific area of a community that requires special attention, such as an environmentally
sensitive area or rapidly developing highway corridor. The overlay is superimposed over conventional
zoning districts. It consists of a physical area with mapped boundaries and an ordinance detailing
requirements that are either added to, or in place of, those of the regulations. Overlay districts specify
requirements that take precedence over those of the underlying districts they cover.
Overlay Districts
Benefits
•
•
•
•
Limitations
Help protect natural resources in desired areas in the
community
Easily implemented
Recognizes land dedicated to agriculture or other
specific use
Help protect large blocks of land
•
•
•
Additional zoning requirements
Not a permanent solution to protect land from
development pressures
Sanctions for withdrawing from district may not be
strong enough to discourage conversion out a specific
land use
Example: Overlay Districts
An example of a community utilizing overlay district is the Town of Kewaskum in Washington County. The Town
currently has three overlay districts, Lowland Conservancy Overlay District, Historic Preservation Overlay District, and
Planned Unit Development Overlay District. The intent of the Lowland Conservancy Overlay is to preserve, protect, and
enhance ponds, streams, and wetland areas. Any applicant who proposes a use or structure within the district must
present a detailed plan and specifications to the Plan Commission who will evaluate them and determine if the proposal
is not in conflict wit the purpose of the overlay district.
“Options Review” for Developers. This tool requires developers to consult with public agencies and
local non-profit organizations working on farmland/open space preservation prior to coming forward
with subdivision or site plan applications. This creates the opportunity to explore ways to protect
portions of the site for preservation for the purpose of farmland use and/or natural resource
conservation. One major limitation to this type of tool is that a community utilizing this tool may find
that developers may choose not to implement any of the preservation options proposed since they are
not mandatory.
“Options Review” for Developers
Benefits
•
Opportunity for developers to consult with public
agencies and local organizations to explore farmland
and open space preservation areas of developments.
Limitations
•
•
Staff resources needed to implement program
Not mandatory, therefore developers may choose not
to participate
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COMMERCIAL AND INDUSTRIAL DEVELOPMENT
As has been demonstrated throughout this plan, commercial and industrial development represents a
very small portion of the community. Local resident sentiment would like to see this continue in the
future.
Though still only a small fraction of land in the Town, with the recent expansion of USH 45 and the
future realignment of STH 15, commercial and industrial development demands will increase. It is
important for the Town to properly locate future commercial and industrial development in areas that
provide convenient access to motorists and Town residents. One strategy that was discussed during
the planning process was to provide a greater opportunity for home-based businesses. Home-based
businesses are located in residential and agricultural areas. They are uses that are small and accessory
to the residential/agricultural use on a parcel. Examples may include activities on local farms (i.e.
roadside stands, bed and breakfasts, u-pick operations, cabinet makers, etc.), as well as the operation
of small businesses from within residences (i.e. hair stylists, childcare, attorney, accountant, etc.).
This practice was viewed as an opportunity to sustain local agricultural operations and diversify the
local economy.
DEMAND
As is reflected in state and local population projections, the Town’s population is expected to steadily
increase over the next 20 years. Accordingly, a demand for housing will remain steady.
Given low vacancy rates, new housing construction will be important to meet local demand.
Moreover, providing housing for all stages of life and all lifestyles will be important to meet demand
of Hortonia’s residents. By providing choices, the Town can accommodate the housing demands of
families, single individuals, retirees, young professionals and others in need of local housing.
TRENDS IN LAND AND HOUSING PRICES
Land prices in the Town are expected to steadily rise in value as more and more people continue to
move to the community to enjoy its great location, natural resources, and rural quality of living.
Annexation
What’s a Growth Boundary?
In Wisconsin, cities and villages cannot instigate annexations.
Town landowners have to petition for annexation; then cities and
villages have to determine whether or not they are willing to
annex those parcels.
On April 22, 2004, the Governor signed SB 87 (2003 Wisconsin
Act 317), which prohibits a city or village from annexing any
town territory unless the City or Village agrees to pay the Town,
for five years, an amount equal to the property taxes that the
Town imposed on that land in the year in which the annexation
was finalized.
Growth boundaries between New London
and Hortonville should be first verbally
agreed to and then mapped. A growth
boundary represents the planned limit of
urban growth for a 10 and 20-year period.
These growth lines help the Town to plan
for its own growth and development and
help limit conflicts between neighboring
municipalities.
If the Town of Hortonia is concerned about annexations, the Town should study why residents decide
to petition for annexation:
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•
•
•
•
Do residents want services the Town is unable to provide?
Does annexation increase the marketability and value of their property?
Is the annexing municipality more willing than the Town to address their concerns?
What other issues are involved?
Once the issues have been identified, the Town needs to determine what measures it can, and is
willing to take to address those issues. To minimize the potential for annexation, several solutions
exist, including:
•
•
•
•
Educating landowners about advantages to remaining in the Town in order to prevent annexation.
Utilizing innovative water and sewer technologies, perhaps even including a local sanitary
district, to ensure that Town development can be served with alternative systems, rather than
requiring annexation by adjacent municipalities to extend municipal water and sewer.
The creative use of a Purchase of Development Rights (PDR) Program. By purchasing the
development rights of land adjacent to the Town’s common boundaries with Fond du Lac, the
bordering land will be less desirable for annexation because its development potential will be
gone.
Approval of boundary agreements with Hortonville and New London.
Opportunities for Redevelopment
Opportunities for redevelopment are limited in the Town of Hortonia. Existing development in the
Town is in good condition, not blighted. There is not a great surplus of vacant buildings or brownfield
sites in the Town. The only site that has potential for redevelopment is the Town Hall. The Town Hall
will require relocation once the STH 15 realignment is finalized. The Town has the opportunity with
relocation of this historic structure to consider a site that could also accommodate a newer, larger
Town office with indoor pluming, central heating/cooling and additional storage space. Such a facility
could be made available to residents for rental use. In addition, a site should be selected that can
accommodate necessary parking and perhaps even a small Town park facility.
A Rural Land Ethic
A consistent theme reflected throughout this plan – from the values to the visions – is the desire to
maintain the rural character of the community. This theme is similar to the native philosophy of
planning for 7 generations. When land use decisions are made, Native Americans consider the impact
this will have not today, or tomorrow, but 7 generations into the future. As a result, it is their
traditional to minimize the impact of development on the land. Similarly, Hortonia’s residents want to
preserve open spaces, natural areas, farmland and natural habitat for future generations to enjoy. They
can achieve this through implementation of this plan and consistent zoning and subdivision
regulations. On a much smaller scale, many Town residents already practice this philosophy by
embracing native landscaping techniques, replacing vegetation, and other conservation techniques.
Chapter 10 provides a definition of rural character and more specific strategies to address this
important theme.
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10.0
FUTURE LAND USE
Introduction
To understand why residents take pride in the Town of Hortonia one
only needs to visit the community. There, you will take in the sights
of quaint rolling farm fields, peaceful wetlands teeming with
wildlife, fisherman enjoying the Wolf River, and rural residences
that overlook the natural, country scene. Hortonia is a beautiful
example of what makes rural Wisconsin special. Town residents
value the natural setting, rural character and agricultural traditions.
These attributes and many, many more are echoed in the value
statements presented in Chapter 1 and the strengths and opportunities
listed in Chapter 2.
Land Use Vision
To preserve our rural Town character, protect natural and
historical resources, promote sustainable growth and
provide a legacy that will enrich the lives of future
generations.
Background
To develop the Future Land Use Maps, a great deal of effort was
required over the course of an 18-month planning program. The
planning process was initiated with an extensive vision development
effort and review of population characteristics. This information is
described in Chapters 2 and 3. From there, the Town studied current
conditions and future needs related to housing (Chapter 4),
transportation (Chapter 5), utilities and community facilities
(Chapter 6), and economic development (Chapter 8). The Town also
examined the environment and agricultural considerations in Chapter
7. Finally, current land use was considered in the previous chapter.
Images of Hortonia
Town of Hortonia Comprehensive Plan – Future Land Use Chapter
10-1
Resident Opinions About the Future of Hortonia
Appreciating resident ideas about the future of the community was accomplished through a variety of
means, each of which is profiled here.
COMMUNITY VALUES
The planning process began with an assessment of community strengths, weaknesses, opportunities and
threats (see Chapter 2). Immediately thereafter, residents were asked to consider community values. By
answering the question, “What makes the Town of Hortonia special” it was easy to identify local
priorities. A complete list of values is provided at the end of Chapter 1.
COMMUNITY SURVEY RESULTS
Throughout this plan results from the 2003 Hortonia Town Survey are highlighted. This information has
served as a barometer for understanding resident concerns and expectations. A copy of the complete
survey results is provided in the appendix. Question #6 from the survey was particularly useful in
preparing this Land Use Chapter. That question asked residents to indicate what level of emphasis should
be placed on promoting a series of different types of development.
LEVEL OF PREFERENCE
Use
Strong Moderate
Slight
Business Development
22
7
86
Park Development
50
61
55
Unique Character Preservation
119
30
22
Wildlife Habitat Preservation
124
36
9
Residential “Green Areas”
113
45
13
Rural “Open” Character
124
33
10
Groundwater Quality
147
21
1
Multi-Family Housing
3
30
128
Large Lot Subdivisions
45
53
69
Cluster Subdivisions
20
69
77
Total Response
115
166
171
169
171
167
169
161
167
166
The results from Question #5 in the survey were also useful in preparing this chapter because the
information provides some insight about desired location for development based on the type of land use.
In this question, residents were somewhat divided about where future residential development should
occur – with 15% of survey respondents indicating that no future residential growth should occur.
Multiple-family development was not desired by the majority of residents, while any future commercial /
industrial growth was encouraged near STH 45 and STH 15. Later in the survey, in Question #10,
residents indicated overwhelmingly that business uses should be conentrated in the community (89%) as
oppossed to dispersed around the Town (11%). For planning purposes, this is also interpreted to mean
that residents do not want to see commercial / industrial development line local highway corridors, but
rather, businesses should be concentrated in some more specific locations along the highway corridors.
10-2
VISUAL PREFERENCE SURVEY
On February 9, 2006, residents had the opportunity to complete a visual preference survey. In this
activity, participants were shown a series of 30 different images. The photos included natural areas,
farmland, housing, and commercial uses from Hortonia and areas beyond. Participants were asked to rank
(on a scale of –5 to +5) what they felt were the images most consistent with what they would like to see in
Hortonia. The results of this exercise were presented to the Town as an information item in March 2006.
Some of the most desired images are provided here. The complete visual preference survey results are
provided in the appendix. Generally speaking, commercial and higher density residential uses received
the lowest ratings of all photos shown. This is consistent with the 2003 Hortonia Town Survey Results.
These two images were the highest rated among the 30 photos shown during the Visual Preference Survey exercise.
The photo on the left received a 97.3% positive rating and the photo on the right had a 94.5% positive rating.
The two photos above rated the highest among pictures showing residential development options. The photo at left
ranked fourth of all photos shown and the photo at right was ranked seventh by plan participants.
10-3
COGNITIVE MAPPING
Another tool used to appreciate resident desires for future development was cognitive mapping. Cognitive
mapping is a process whereby individuals have the opportunity to develop their own, personal future land
use map of the Town. This activity was included as part of the Mid-Course Workshop held on February 9,
2006. Nearly 40 residents participated.
Cognitive mapping is a two-part process. Participants first have the opportunity to create an Attitude Map
to express their ideas about what areas of the Town are attractive and unattractive. On this map
participants indicate important local travel routes and places that have special meaning as well as areas of
traffic concern. A Composite Attitude Map is provided in this chapter to represent consistent patterns and
ideas shown on the maps prepared by individual participants. The Composite Attitude Map is not a direct
translation of any single map created during the exercise, but rather an illustration of similarities found on
the majority of maps.
The Composite Attitude Map reveals that:
•
•
•
Residents consider the area along the Wolf River, Falling Wings Subdivision, and western portions of
the Town particularly scenic.
Residents are concerned about the appearance of the quarry and uses lining the STH 15 corridor on
the west side of Hortonville.
Residents are also concerned about traffic at certain intersections in the community. These particular
intersections are included on the Transportation Plan Map in Chapter 5 as areas for
improvements/upgrades.
Next, participants had the opportunity to develop Individual Future Land Use Maps based on their ideas,
perceptions, experiences and beliefs. A Majority Opinion Map, based on the individual maps created by
participants, is provided in this chapter to indicate consistent trends and patterns revealed on the
Individual Future Land Use Maps. Again, it is important to understand that the Majority Opinion Map is
not a reproduction of a single map, but rather a composite image created after examining all the individual
maps.
The Majority Opinion Map reveals that:
•
•
•
•
•
•
Residential development is desired near existing subdivisions and near the Village of Hortonville.
Commercial and industrial uses are concentrated along STH 15 (near Hortonville) and near the City
of New London.
Preservation areas correspond to woodlands and wetlands.
Alternative housing development (i.e. senior housing) is possible near existing facilities (around
Hortonville) and near planned commercial/industrial uses outside of New London. Apartments are
generally not desired in the community.
Residents want to continue to see agricultural uses dominate the landscape.
A walking/biking trail is desired which corresponds to the planned WIOWASH trail route (refer to
the Transportation and Utilities and Community Facilities Chapters for more information).
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10-5
10-6
Community Design Considerations
Community design and appearance is an important aspect of planning. To that end, Hortonia enforces its
own zoning regulations. However, as is discussed in the previous chapter, opportunities exist to enhance
Hortonia’s Zoning Ordinance to provide more concise requirements related to signage, exterior lighting,
and landscape/buffering requirements.
What follows is a discussion of some particular issues and opportunities with respect to design in the
Town of Hortonia.
PRESERVING RURAL CHARACTER
What is “rural character”? For every community the answer is somewhat different. In the Town of
Hortonia, rural character means a blend of:
•
•
•
•
•
•
Single-family residential development at a low density (3-acre minimum)
Farm operations
Wooded areas
Streams, creeks and the Wolf River
Open, scenic, distant views of Mosquito Hill, farmland, and other natural areas
Abundant natural resources and wildlife
To maintain these features, the Future Land Use Maps provide a preferred pattern for development and
the zoning and subdivision ordinance provide minimum standards for density and layout. This plan also
identifies other tools landowners can use to maintain farmland and open areas (i.e. land trusts, easements,
critical overlay zone, etc.).
MAINTAINING DARK SKIES
For additional information about the Society for Dark
Sky Preservation, visit their web site at:
http://www.darkskysociety.org/links.cfm
In recent years, a movement has spread across the
country related to outdoor lighting. At the forefront of
these efforts is the Society for Dark Sky Preservation.
This organization’s mission is to ensure that the night
sky is visible by eliminating intrusive lighting.
Hortonia believes that its rural character includes the
dark skies overhead that make it possible to enjoy the
stars at night. To that end, Hortonia will seek to
promote lighting choices that:
•
•
•
•
•
Keep glare to a minimum;
Beautiful sunsets add to Hortonia’s ambiance in the
Discourage the use of direct uplighting in any
same way views of the stars at night are an asset of
application;
the community.
Put outdoor lighting only where it is needed and
when it is needed (i.e. use motion detectors);
Use alternatives to constant “dusk-to-dawn” lighting whenever possible; and,
Eliminate light trespassing on neighboring properties and roadways.
These restrictions can be enforced through zoning and site plan review.
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SITE PLAN REVIEW
The Town of Hortonia should consider adopting a more formal site plan review process for any proposed
commercial uses. Site plan review is a common requirement in many communities. Essentially, it requires
that when someone is interested in developing a new commercial use, they provide a detailed drawing
that indicates precisely what is planned. This requirement would become part of the Hortonia Zoning
Ordinance. Due to the fact that site plan submittals are often technical in nature (i.e. drainage plan,
grading plan, façade improvement plan, impervious surface calculations, etc.), it is likely that the Town
will want to work with an engineer or planner to review these applications. This review will help to
ensure that proposed uses comply with Town, County and State standards with respect to roadway design,
stormwater management, planned sanitary systems and water. Many communities adopt fee structures so
the cost for any professional review is paid by the applicant, not the Town.
MINIMIZING OUTDOOR ADVERTISING (BILLBOARDS)
Citizens for a Scenic Wisconsin
has model ordinances available to
regulate billboards. More
information is available at:
www.scenicwisconsin.org/
USH 45 and STH 15 offer opportunities for billboard advertising
in Hortonia. The Town believes that preservation of natural beauty,
including open views of woodlands, wetlands and farmlands from
roadways, is important to protect the quality of life and rural
community identity. The Hortonia Zoning Ordinance does not expressly address off-premise signs (i.e.
billboards). To address this situation, the ordinance should be modified to clearly restrict off-premise
signs. By adopting and enforcing such a requirement, Hortonia will be able to protect the scenic integrity
of its rural landscape as seen from local highway corridors.
CONSERVATION SUBDIVISIONS
In the Housing Chapter, as well as the Agricultural, Natural and
Cultural Resources Chapter of this plan, the topic of conservation
subdivisions is discussed. Both chapters recommend this approach
to accommodate residential development while balancing natural
features and the rural setting of the community.
To appreciate resident views on this approach, photos of a
traditional and conservation subdivision designs were included as
part of the Visual Preference Survey conducted on February 9,
2006. Participants ranked the conservation subdivision design
significantly higher than the traditional subdivision layout. In
addition, during the same meeting, a brief questionnaire was
distributed. That questionnaire included a question asking residents
about the use of conservation subdivisions. About 66% of
respondents (18 total) indicated that conservation subdivisions
should be encouraged or strongly encouraged in Hortonia.
Conservation subdivisions are particularly appealing in Hortonia
given the topography, abundant natural resources, and desire on
the part of residents to maintain open, green spaces.
Above: Traditional subdivision layout with
lots distributed across a property.
Below: Conservation approach with lots
clustered together and open space
preserved.
10-8
AVOIDING RURAL SPRAWL
The Town of Hortonia lies between the City of New London
and Village of Hortonville. Its rolling hills, scenic vistas,
woodlands, and natural features contrast with the urban
neighborhoods of these communities. While Hortonia
residents enjoy the rural, country atmosphere the Town
provides, its desirability as a peaceful, relaxing place to live
puts the Town at some risk. If too many people “discover”
the community and move to Hortonia, the peaceful, relaxing
atmosphere may be lost.
The potential for “sprawl” (see box) is of some concern in
Hortonia. Agricultural zoning (on 35-acre parcels) and Rural
Estate Zoning (7-acre minimum) is in effect in much of the
Town. Rezoning significant portions of these areas to allow
for smaller lot development has the potential to change the
rural character of the community. Residential development
will replace farm fields, barns, silos, open views, wildlife
corridors, etc. Complicating matters, conflicts with
remaining farmers (i.e. odor, dust, noise) are more likely to
occur if residential development is allowed to spread into
and adjacent to farming areas.
Given that Hortonia’s population is projected to increase
over the planning period, new housing development is
imminent. To accommodate new development, but at the
same time prevent sprawling development patterns in areas
that have retained their rural, agrarian character, the Future
Land Use Maps identify primary areas for future residential
development. These areas are adjacent to existing
development, include areas already zoned for residential
development, and are generally located to avoid prime
agricultural lands. By concentrating development in these
locations, the Town can accommodate some new growth,
while still preserving its overall rural integrity. The use of
conservation subdivision practices is encouraged in these
areas.
WHAT IS RURAL SPRAWL?
“Sprawl” usually refers to development with
negative effects such as loss of agricultural
land, open space, and wildlife habitat. Sprawl is
often equated directly with growth. That is, as
population increases in an area or as City limits
[i.e. New London] expand to accommodate
growth, an area is considered to be sprawling
(National Geographic, November 1999 Issue).
One of the strongest indicators of sprawl is
increased traffic. As a result, auto-dependent
development is considered to be sprawl.
Sprawling development is usually located on
the urban fringe, at the edge of an urban area.
Sprawl is often considered to be “low-density”
development, though how low is generally not
defined. Because “low” is a relative term, even
when low-density is defined, it is not
standardized and ranges significantly (i.e. 3
units per acre to 1 unit per 40 acres).
Residential development creeping into farmland
in the Town of Center, Outagamie County WI
Traditional (vs. conservation) residential subdivision spanning into farm areas on the eastern end of Outagamie County, WI
10-9
How Were the Future Land Use Maps Developed?
The Future Land Use Maps were developed
using a very specific process:
1. Natural resource areas were identified to
understand development limitations
including, wetlands, floodplains, surface
water and quarry sites (see the Natural
Features Map in the Agricultural, Natural
and Cultural Resources Chapter).
2. Prime agricultural soils were identified to
appreciate the most productive farm areas
in the community (see maps in the
Agricultural, Natural and Cultural
Resources Chapter for more information).
In planning terms, steps 1 & 2 above are
classified as a land suitability analysis. The
purpose of this effort was to avoid
development in areas that are unsuitable for
development.
What’s The Future of State Highway 15?
Throughout the Hortonia planning program, efforts were
made to track the Wisconsin Department of
Transportation decision-making process related to the
future of STH 15. When this chapter was developed, a
final decision regarding the alignment of STH 15 had not
been made. In fact, a decision was not expected until
months after the Hortonia Planning process was to be
completed. Given this situation, three alternative
alignments (as developed by WisDOT) are shown on the
Future Land Use Maps provided at the conclusion of this
chapter. It is strongly recommended that development
along the corridor routes be delayed so as to avoid
situations were development is approved that later
creates a conflict with the planned highway corridor. As
such, these routes are designated as “Corridor Study
Areas” on the Future Land Use Maps.
The following activities are recommended once an
alignment is approved:
1)
The Town should review the selected route in
3. Future population and household
the context of this plan. Opportunities for some
projections, in conjunction with zoning
limited development (not lining the corridor, but
at particular intersection locations) may be
requirements, were examined to
desirable. However, the scope of this
understand the extent of future residential
development should be limited to be consistent
development needed in the Town.
with resident opinions expressed during the
4. Utility and community facility capacities
planning effort. Moreover, it should be realized
plans were reviewed to understand future
that access restrictions will impact development
community needs (i.e. Town Hall, trails,
along the corridor.
etc.).
5. Places that are valued locally (i.e.
2) The two alignments not selected should be
Knowledge Hill School, Town Hall, the
removed from the Future Land Use Maps.
ledge, Wolf River) were considered as
3) An amended plan map should be adopted by
places people treasure. As such, the plan
the Town after a 30-day comment period and
maps seek to respect the integrity of these
public hearing in accordance with the State
features of the community.
statutes.
6. The results of the 2003 Hortonia Town
Survey, Visual Preference Survey and cognitive mapping exercises were reviewed to emphasize
resident desires and expectations.
7. Finally, the plan maps were examined for regional context. As a result, the maps generally seek to
concentrate development near urban areas (i.e. near New London and Hortonville). This approach
will allow Hortonia to serve as a rural, open space between these two communities. As such,
Hortonia, Hortonville, and New London will be able to maintain independent community identities
over the next 20-years.
The result of this process is reflected in the detailed set of Future Land Use Maps presented at the end of
this chapter.
10-10
How Are the Future Land Use Maps to Be Used?
The Future Land Use Maps are a planning tool for the Town of Hortonia. In accordance with the
Comprehensive Planning Law, they should be used to guide the following actions:
•
•
•
Local Subdivision Regulation
Official Mapping
Zoning
Town appointed and elected officials should use the plan maps as a guide for making future land use
decisions.
Developers and residents should understand the plan maps are intended to direct development to certain
areas where facilities and services are available.
It is important to remember that a plan is not a static document. It must evolve to reflect current
conditions. If not regularly reviewed and amended, it will become ineffective. Applications for rezoning
and development that are inconsistent with the plan and plan maps must still be considered. In some
situations, it may be desirable to amend the plan (and maps) to accommodate a compatible, but previously
unplanned use. Likewise, a change in county or regional policy, technological changes, or environmental
changes may also impact the plan.
Any change to the plan (including the plan maps) must be considered in the context of all nine required
plan chapters, including the visions, goals and policies expressed in this document. If an amendment is to
be approved, the process must include a formal public hearing and distribution per the requirements of the
Wisconsin Comprehensive Law. Any amendment must be recommended by the Town and approved by
the Town Board before development is permitted.
What’s the Difference Between Zoning and Planning Maps?
Zoning is a regulatory tool established to control land uses. It lists permitted uses, minimum lots sizes,
required setbacks, etc. It is a very specific document.
Planning, on the other hand is a vision, or ideal, of a community. It is not as precise as zoning. It is a
guide for future development. As such, a plan will not necessarily mirror existing zoning patterns. This
may be because some areas of the Town are not expected to be developed over the planning period
(though they may be zoned for residential development) and others may be planned for uses different than
current zoning. The Future Land Use Maps provided at the conclusion of this chapter are planning maps.
These maps present a vision for future development patterns. These maps should serve as a guide for
addressing rezoning requests.
A simple way to think about the difference between planning and zoning is to think of the construction of
a house. A blueprint would be the plan for the home. Whereas the zoning ordinance [and a subdivision
ordinance] would serve as a tool, like a hammer or nails, used to build the house. In this way, zoning and
subdivision regulations are tools to encourage desired development patterns in Hortonia as reflected on
the plan maps.
10-11
Future Land Use Map Legend
Provided at the conclusion of this chapter are a 10-Year and 20-Year Future Land Use Map. Two maps
are provided in accordance with the requirements of 1999 Wisconsin Act 9. The 20-Year Future Land
Use Map is the primary planning tool for the community; it is the official plan map. The 10-Year Future
Land Use Map is a reference tool to provide an indication of the timing of anticipated long-term
development. The Town should rely on the 20-year Future Land Use Map when making development
decisions.
The Future Land Use Maps illustrate the anticipated amount, location, and intensity of new development.
As is described below, the area outlined for future residential development exceed the areas needed, based
solely on the population projections. Additional areas were added to provide choices for residential
development so as to prevent the inflation of land values. Likewise, by outlining additional areas, the
longevity of the plan is further ensured.
The Future Land Use Maps include, among others, the following categories of land use:
•
Single-Family Residential Development. These areas reflect residential subdivision development in
the Town of Hortonia in existence at the time this plan was completed.
•
Primary Future Residential Development Area. 552 Acres are designated on the 20-Year Future
Land Use Map (394 are designated on the 10-Year Future Land Use Map) to accommodate projected
population gains.
These 552 acres are more than is “required” (321 acres) to ensure that there is adequate space for future
residential use. Additional acreage is provided to accommodate for:
o
o
o
o
Unbuildable areas that exist in the designated Primary Future Residential Development Areas.
Necessary reductions in acreage to accommodate infrastructure and roadway improvements.
The fact that some landowners may not want to sell their land, so all of the designated lands are not
available for development.
To provide for choices in the marketplace to avoid unfair pricing.
By providing more land, the Town is demonstrating that it wants to accommodate some growth, but also
guide where that development will take place. In doing so, they wish to avoid sprawling patterns that will
have an adverse impact on the rural character of the community.
TABLE 27
PROJECTIONS FOR FUTURE HOUSING
Formula or Source
Calculated Figures
Population Increase
234 Persons
Projected Additional
Household Need
Wisconsin Dept. of Admin.
[See Table 2 in Chapter 3]
Wisconsin Dept. of Admin.
[See Table 4 in Chapter 3]
Average Lot Size
R-1 Minimum Lot Size
3 Acres
Total Additional Land
Needed for Residential Use
107 Units x 3-acre lots
321 Acres are needed for residential
use
107
10-12
•
Highway Business. This plan recognizes the opportunity highway frontage presents for business
development. However, commercial development is not encouraged along the entire length of area
highways. Such a pattern would have a negative impact on the Town’s rural character and access
limitations imposed along highway corridors make such a pattern unlikely. By following this
concentrated business development pattern, access can be more
carefully controlled, and open rural areas can be preserved.
•
Public / Institutional / Cemeteries. This includes the Hortonia
Town Hall, local churches, cemeteries, and planned park sites.
•
Non-Metallic Mining is limited to the existing MCC quarry site.
Based on information contained in the quarry’s reclamation plan,
this site is expected to continue in operation over the planning
period. No additional quarry sites are planned in the Town of
Hortonia. Any future application for non-metallic mining will be
subject to the provisions of NR 135 (refer to the Agricultural,
Natural and Cultural
The ledges in the western half of Hortonia
Resources Chapter for
are located in the environmental corridor as
more information).
shown in dark green on the Plan Map.
•
Environmental
Corridor. Wetlands,
floodplains, woodlands,
and areas adjacent to
creeks and streams (i.e.
shoreline protection
areas) and areas of
severe slope fall within
this category.
•
Senior Housing. A
Potential location for
additional senior
housing is identified on
the 20-Year Future
Land Use Map. This
site was selected given
its proximity to planned
future development and accessibility to medical facilities in New
London. Development of such a facility will require private
investment and sufficient market demand.
•
In all three proposals for State
Highway 15, the Town of Hortonia
Hall will be impacted. Relocation
costs will be paid by the Wisconsin
Department of Transportation.
Below: Samples of Town Halls in
Outagamie County. These may serve
as Models for Hortonia.
Corridor Study Area. The three potential alignments of Highway
15 are shown as Corridor Study Areas on the Future Land Use
Maps. Development adjacent to these corridors should be limited
until such time as a final alignment is selected and Hortonia can
complete follow-up planning activities.
10-13
•
Rural Character District. Areas in this category are
meant to remain as farmland or otherwise undeveloped
areas as long as feasible and desirable by local
landowners. If residential development is proposed, a
balance of open areas, farmland, wildlife habitat and open,
scenic views should be maintained in order to protect the
Town’s rural character. This can be achieved through
application of minimum lot size requirements for land
division required by the A-1 (35 acres) and RE (7 acres)
Zoning Districts.
Individual lot development (CSM’s, not subdivisions) in the Rural Character District should have a
minimum impact on Hortonia’s rural character. The following principals should be followed as closely as
possible when developing properties in the Rural Character District of the Town:
•
•
•
•
•
•
•
When individual lots (CSM’s) are proposed, new homes should not be placed in the middle of open
farm fields.
Individual residences (not part of subdivisions) should be located adjacent to tree lines and wooded
field edges, if available. If not, homes should be clustered on the edges of farm fields and
undeveloped areas to retain farmland and open views.
Where clustering of homes will yield open space that can remain actively farmed or protect vital
wildlife habitat/corridors, its use should be explored and possibly required.
Tree lines must be preserved.
Roads should be constructed to follow contours.
Disturbance for the construction of roads, basins and other improvements should be kept at a
minimum by clustering homes together to prevent disturbance to an entire property.
Disturbance on individual lots should be limited by restricting development to occupy only a portion
of a lot.
New subdivision development should not occur in the Rural Character District, unless:
1) Adjacent to an existing subdivision;
2) In areas with severe slope limitations that make farming particularly difficult; and,
3) Conservation-based development approaches are used.
•
Prime Agricultural Lands. These properties include
the most productive soils in the community. As such,
these areas should adhere to the A-1, Agricultural
District requirements contained in the Hortonia Zoning
Ordinance. Half of all agricultural land in Hortonia falls
into this category.
10-14
•
Trails. Planned multi-use trail routes are
shown on the Future Land Use Maps. These
trails correspond to the recommendation
included on the Transportation Network &
Plan Map in Chapter 5. That map also
includes recommended bicycle routes
through Hortonia.
How Much Land is Provided
for Development?
This image
was ranked 6th
by participants
in the VPS
exercise. This
high rating is
an indicator of
the desire for
trails in
Hortonia. Trails
shown in
yellow with
green dash on
Plan Map.
Table 24 provides a breakdown of projected
future development, in five-year increments. As with any long-term planning document, as proposals are
presented, amendments may be necessary to reflect market forces that shift land use patterns. To
implement this plan, the Town of Hortonia Town will direct development to the areas identified on the
Future Land Use Maps.
TABLE 28
20-YEAR PROJECTIONS FOR FUTURE LAND USE ACREAGE
Land Use Type
2010 (acres)
2015(acres)
2020 (acres)
2025 (acres)
Single-Family Residential
Mobile Homes
Rural Commercial
Highway Business
Industrial
Public / Institutional/Cemeteries
Utilities
Non-Metallic Mining*
Natural Features
Rural Character District
Prime Agricultural Lands
705
8.3
29.2
78
49
7.8
7.5
160
3,895
3,016
3,242
900
8.3
29.2
78
49
8
7.5
160
3,895
3,016
3,242
975
8.3
29.2
78
49
15
8
160
3,895
2,950
3,220
1,058
8.3
29.2
78
49
15
8
160
3,895
2,903
3,200
Percent of Land**
Land Use Type
2010
2015
2020
2025
5.6%
0.1%
0.2%
0.6%
0.4%
0.1%
0.1%
1.3%
30.8%
23.9%
25.7%
7.1%
0.1%
0.2%
0.6%
0.4%
0.1%
0.1%
1.3%
30.8%
23.9%
25.7%
7.7%
0.1%
0.2%
0.6%
0.4%
0.1%
0.1%
1.3%
30.8%
23.3%
25.5%
8.4%
0.1%
0.2%
0.6%
0.4%
0.1%
0.1%
1.3%
30.8%
23.0%
25.3%
Single Family Residential
Mobile Homes
Rural Commercial
Highway Business
Industrial
Public / Institutional/Cemeteries
Utilities
Non-Metallic Mining*
Natural Features
Rural Character District
Prime Agricultural Lands
* Based on ownership.
** Percentages do not equal 100% because road right-of-way, trails and surface water are not included. Percentages do not
account for future land losses from annexation.
10-15
Relationship to Other Required Plan Chapters
Throughout this plan, important ways each of the required chapters relates to the Future Land Use
Chapter has been discussed. This chapter will have a significant role in the two remaining chapters of this
plan, as described below.
INTERGOVERNMENTAL COOPERATION CHAPTER
Intergovernmental activities have the potential to impact Hortonia in many ways. For example,
transportation projects (i.e. STH 15 changes) implemented by the Wisconsin Department of
Transportation can impact accessibility of the Town and create development pressures. Hortonia’s
relationships with the City of New London and Village of Hortonville also have the potential to impact
the successful implementation of this plan. These issues are discussed more in the Intergovernmental
Chapter of this plan.
IMPLEMENTATION CHAPTER
It takes much more than simply adopting a plan to see visions become reality. The Implementation
Chapter outlines the goals and objectives from all required chapters with milestone dates for achieving
each item. In addition, the Implementation Chapter discusses potential zoning changes to achieve the
visions expressed in this plan.
The policies, goals and objectives for Land Use can be found in the Implementation Chapter (Chapter 12).
10-16
10-17
10-18
11.0
Introduction
Intergovernmental cooperation involves working with
neighboring communities and agencies to understand
how their future planning activities will impact the
Town of Hortonia. At a minimum, this involves sharing
information about Hortonia’s plan with neighboring
communities and agencies and vice versa. However,
Hortonia believes intergovernmental cooperation
should not end with the sharing of plans. Instead, this
process should be the beginning for joint planning and
decision-making, conflict resolution, and other
strategies to promote regional coordination.
Wisconsin’s Comprehensive Planning Law includes 14 goals for local comprehensive planning. The
goals listed below specifically relate to planning for intergovernmental cooperation:
•
•
Encouragement of land uses, densities and regulations that promote efficient development
patterns and relatively low municipal, state governmental and utility costs.
Providing an integrated, efficient and economical transportation system that affords mobility,
convenience and safety and that meets the needs of all citizens, including transit-dependent and
disabled citizens.
The Comprehensive Planning Law requires that the Town of Hortonia coordinate with:
•
•
•
•
•
•
•
•
Town of Liberty
Town of Mukwa
Town of Caledonia
Town of Dale
Town of Greenville
Town of Ellington
City of New London
•
•
•
•
•
•
•
Outagamie County
Hortonville School District
New London School District
Wisconsin Department of Transportation
Wisconsin Department of Natural Resources
Waupaca County
East Central Wisconsin Regional Planning
Commission (ECWRPC)
Intergovernmental Cooperation Vision
By 2025, intergovernmental cooperation efforts have enabled Hortonia to
establish partnerships with neighboring communities, state agencies, Outagamie
County, and the New London and Hortonville School Districts to provide
coordinated, cost-effective services. Hortonia has successfully partnered with the
Town of Mukwa, Outagamie County, Waupaca County and other surrounding
communities to create a network of trails linking the Town with the Wiouwash
Trail, providing recreational and educational opportunities for residents and
visitors.
Town of Hortonia Comprehensive Plan - Intergovernmental Cooperation Chapter
11-1
Existing Intergovernmental Activities and Partners
Many intergovernmental programs already in effect impact the Town of Hortonia. This section
highlights programs that are currently in place.
ADJACENT/NEARBY GOVERNMENTAL UNITS
•
•
•
Towns of Liberty, Ellington, Greenville, Dale, Caledonia and Mukwa
City of New London
Hortonia’s relationship with neighboring Towns can be characterized as one of mutual respect and
compatibility from a land use and political standpoint. These Towns share a common rural character
with Hortonia. Since Towns cannot annex land from one another, boundary disputes are non-existent.
Public services such as road maintenance and construction are conducted individually by each
community. However, as mutually beneficial opportunities for shared services arise, the Town of
Hortonia is open to considering shared services options.
The Town of Hortonia shares a large portion of its eastern boundary with the Village of Hortonville
and its northwest boundary with the City of New London. Both Hortonville and New London are
important destination points for residents. Hortonia residents enjoy access to nearby parks, library and
business areas. New London and Hortonville are the communities that have the greatest potential for
future conflict over land use with the Town of Hortonia, particularly as it relates to possible
annexation. The Town of Hortonia is committed to providing quality development choices within its
boundaries and believes that, with proper planning, its soil conditions and water resources make this
possible without municipal water or sewer systems. The Town will coordinate its development in
ways consistent with the plans of the City of New London and the Village of Hortonville.
SCHOOL DISTRICTS
The Town’s relationship with the Hortonville and New London School Districts can be characterized
as cooperative. The Town appreciates the quality service provided by the school district and the fact
that the schools are a draw to the area for new residents. Regular and open communication is critical
to ensure that this cooperative relationship will continue and be strengthened as growth continues.
With respect to intergovernmental cooperation, some opportunities were identified during the
planning effort to strengthen relations between the Town of Hortonia and the Hortonville and New
London School Districts. Specific goals and objectives to help realize several of these opportunities
are included in the Intergovernmental Cooperation section of the Implementation Chapter.
OUTAGAMIE COUNTY
The Town of Hortonia is located in Outagamie County. The County provides many programs,
services, and facilities (i.e., parks) that are available to Hortonia residents. Outagamie County
programs that most directly impact Hortonia include:
•
•
•
•
County highway maintenance and improvement programs;
Library funding support (to help cover the costs of county residents who use the library);
Social services; and,
Town road maintenance and rating assistance
11-2
Unfortunately, most County services and programs are concentrated in Appleton. Access to these
services is challenging to Hortonia residents in need, particularly those residents that cannot drive.
Hortonia encourages the County to consider opportunities for additional outreach programs, and
improve transportation access. Additional transportation information can be found in Chapter 5.
In those areas where Outagamie County has jurisdiction, the County attempts to get input from the
Town before making decisions affecting the Town. During the planning process, additional
communication with the County was identified as a priority, particularly with respect to County road
improvement projects. Future communication will also be especially important as it relates to:
•
•
•
Stormwater management
Coordination with the Outagamie County Comprehensive Plan
Public safety
STATE AGENCIES
•
•
•
Wisconsin Department of Natural Resources (WDNR)
Wisconsin Department of Transportation (WisDOT)
Wisconsin State Historical Society
WDNR and WisDOT are the primary state agencies with whom
Hortonia must coordinate to achieve the goals and objectives of this
plan.
The activities of the WDNR are
discussed further in the
Agricultural, Natural and Cultural
Resources Chapter of this plan.
Additional information is also
available on-line at:
www.dnr.state.wi.us.
WDNR takes a lead role in wildlife protection and the sustainable management of woodlands,
stormwater regulations, wetlands and other natural wildlife habitat areas. Give the abundance of
wetlands, Wolf River frontage, and priority Town residents give to natural resource protection, the
WDNR is an important partner with the Town of Hortonia.
WisDOT is a key player in the planning and development of highways
and pedestrian/cycling facilities in the Town and region. Hortonia has a
good relationship with WisDOT, and will continue to work with them,
particularly with respect to STH 15. It will be especially important for
the Town to coordinate with WisDOT with respect to any necessary
relocation of the Town hall as a result of improvements to STH 15.
The costs for this relocation shall be borne exclusively by WisDOT.
The Town will continue to communicate with WisDOT about land use
and transportation decisions made locally.
Periodically during the planning process, particular draft chapters were
forwarded to the WDNR and WisDOT for comment (i.e. Agricultural,
Natural & Cultural Resources as well as Transportation).
For additional information about
WisDOT activities in the Town of
Hortonia, refer to the
Transportation Chapter of this plan.
Additional information is also
available on-line at:
www.dot.state.wi.us
Intergovernmental Comprehensive Planning Process
To facilitate a planning environment open to intergovernmental cooperation, Hortonia sent all of its
intergovernmental partners an invitation to participate in the planning program at the onset of its
effort. The letter included direction to the project webpage and an open invitation to review materials
and provide feedback. All plan documents, including text and maps, were available throughout the
11-3
plan program on the project website for review and comment to ensure the widest range of public
participation and input from overlapping and neighboring jurisdictions as well as any other interested
entity or individual.
Throughout the plan development process, the Town also coordinated with Outagamie County,
Waupaca County and ECWRPC to obtain mapping resources as well as information from existing
plan documents.
More than 30 days prior to the public hearing, all intergovernmental agencies/communities were
provided a copy of the recommended plan and asked to provide comments, as is required by State
statues. Comments received were addressed at the public hearing and in the final adopted plan.
Existing and Proposed Plans
ADJACENT/NEARBY GOVERNMENTAL UNITS
During the development of this plan the Village of Hortonville, Town of Dale, Town of Ellington and
Town of Liberty had adopted Comprehensive Plans. These plans were reviewed during the creation of
the Hortonia Comprehensive Plan to ensure all plans were consistent with one another. A great deal
of planning in other surrounding communities was also ongoing as Hortonia’s plan was being
prepared. The Town of Mukwa, Outagamie County, and Waupaca County are currently developing
Comprehensive Plans. Waupaca County is well into a multi-jurisdictional program that includes every
community in the County, except Mukwa who is working separately. It is expected to complete the
plan in 2007. Outagamie County is near the halfway point in its planning effort, which is expected to
conclude in the fall of 2006.
Hortonia has worked with its neighbors to ensure the plans are consistent with one another by
reviewing draft plans and offering feedback. The communication between these communities will
continue in the future.
In an effort to provide as much intergovernmental coordination as possible, the Town facilitated a
process to review the adopted and/or on going plans of its intergovernmental partners in order to
identify common issues, plan discrepancies, and implementation strategies. Particular attention was
given to the City of New London and Village of Hortonville due to the relationship between these
communities with respect to services, facilities and employment.
Based on schedule information available from ECWRPC, the regional comprehensive plan should be
completed in 2006. During the planning process, transportation and land use planning materials
available from ECWRPC were used as a tool for understanding regional development plans. In order
to improve communication with ECWRPC and to avoid inconsistency in plan development and
implementation, a series of activities and programs are identified in the Intergovernmental section of
the Implementation Chapter.
To ensure compatibility with the goals and objectives of this plan, Hortonia will continue to
participate in the planning efforts of its neighboring communities, counties, and ECWRPC as
opportunities arise.
11-4
HORTONIA & NEW LONDON SCHOOL DISTRICTS
At this time, no school district has plans to construct new facilities within the Town of Hortonia. In
order to facilitate future school district planning efforts, this plan recommends the Town continue to
work with the schools districts on future facilities and studies.
The two school districts serving the Town have a long history of planning for improvements and
expansion in response to population growth rates. The districts’ facilities can accommodate a
significant number of new students. Since school district boundaries extend well beyond the Town, it
is likely that new schools, if constructed, will be located outside of Hortonia. To further facilitate
school district planning, this plan has been made available to those districts as a tool to predict future
school enrollments from the Town of Hortonia.
STATE AGENCIES
The WDNR is a major agency involved in the acquisition and development of recreational/pedestrian
trails – an important component of this plan. Furthermore, the WDNR takes a lead role in wildlife
protection and the protection and sustained management of woodlands, wetlands and other natural
wildlife habitat areas. These priorities are reflected in the Agricultural, Natural and Cultural
Resources section of the Implementation Chapter.
The WisDOT has completed a series of Statewide planning documents for use in the development of
local comprehensive plans. These documents include plans for the State highway corridors, bicycle
corridors, rail corridors, and air transportation. The plans were used as a starting point when preparing
the Transportation Chapter of this plan.
Infrastructure to Support Town Success
Historically, Hortonia has been able to function very well with no hired staff. However, as the Town’s
population continues to grow, staff may be needed to meet the demands of a growing community.
The addition of any staff should be carefully considered as part of a larger organization structure
designed to meet resident, economic, and intergovernmental challenges.
The provision of adequate space for government to function is also an issue that will impact the
Town’s ability to coordinate well with neighboring communities and provide needed services for
residents. This issue is addressed in the Utilities and Community Facilities Chapter as it relates to the
Town Hall and park facilities.
Relationship to Other Required Plan Chapters
Intergovernmental Cooperation weaves its ways into every chapter of this plan. Regional housing
demand and supplies determine the market for housing in the Town of Hortonia. Transportation
improvements made to Outagamie County and State highways have the potential to affect land use
and development patterns in the Town. Likewise, the Town’s ability to expand economically depends
on quality services being provided, not only by the Town, but also its intergovernmental partners (i.e.
schools, police, fire, etc.). Moreover, the Town’s ability to support development opportunities at its
perimeter must be coordinated with neighboring communities to ensure compatibility with adjacent
land uses.
11-5
The policies, goals and objectives for Intergovernmental Cooperation can be found in the
Implementation Chapter (Chapter 12).
11-6
12.0
IMPLEMENTATION
Introduction
The Implementation Chapter is the “how to” portion of the plan. It prescribes those actions necessary to
realize the visions presented in this plan. The actions include proposed changes to any applicable zoning
codes, sign regulations, site plan regulations, design review codes and subdivision codes.
This chapter includes all of the goals and objectives of the plan. It serves as the master “to do” list for the
plan.
Relationship Between Chapters
Throughout the plan, coordination between the nine required chapters has been highlighted as a special
section within each chapter. This section was included to highlight the strong connection between the
different plan chapters. Here, the relationship between different chapters is highlighted in the tables as it
pertains to each individual objective statement.
Measuring Progress
To track planning progress and help to ensure that the plan is implemented,
milestone dates (see definition in box) are provided for each objective.
Special attention has been given to the milestone dates to ensure that
individual objectives act in harmony with other stated goals and objectives.
Town Board members and the Plan Commission have reviewed the
milestone dates to ensure that they are feasible expectations for the Town.
To ensure that the plan chapters are understood in their totality over the life
of the plan, the Hortonia Town Board will annually review the goals and
objectives. Part of this effort, will also include addressing conflicts which
may arise between the nine chapters.
Milestone Date
A specific date, after the adoption
of the Comprehensive Plan, when
the Town will review the plan
implementation action to see if the
objective has been met and
consider additional implementation
strategies to achieve the stated
goal. It would be preferable to
complete each implementation
action sooner than the milestone
date assigned to it.
Responsibilities
Implementation of the Hortonia Smart Growth Comprehensive Plan will be the primary responsibility of
the Town Board. The Town Board will make decisions and recommendations pertaining to development
issues, in accordance with this Comprehensive Plan. At least one champion/partner is provided for each
objective. This person / agency will work in conjunction (or under the direction of) with the Town of
Hortonia.
Town of Hortonia Comprehensive Plan – Implementation Chapter
12-1
Updating the Comprehensive Plan
As stipulated in 1999 Wisconsin Act 9, a comprehensive plan must be updated at least once every 10
years. However, in order to ensure that the Town’s plan is an effective management tool, the Plan
Commission will review the plan goals and objectives annually to track those activities that have been
completed, modify remaining goals & objectives, and add additional objectives as needed.
The Plan Commission should initiate its first complete update of this plan by 2016. At that time,
information from the 2010 census will be available to update several tables. This update will also involve
a comprehensive review of the inventory information presented in each chapter. Furthermore, the Town
should coordinate with all partners identified in the Intergovernmental Chapter to understand any external
changes that may impact the plan. Finally, the Town Board will complete a comprehensive review of all
visions outlined in this plan to evaluate progress and consider additional opportunities.
12-2
Housing Agenda
Based on population projections and the predicted reduction in household size over that same period, it is
estimated that there will be approximately 105 additional housing units needed in the Town in 20 years.
To ensure that these units are of high quality, goals and objectives are included here based on the
information gained during the Strengths, Weaknesses, Opportunities and Threats (SWOT) Analysis and
input from the Town Planning Commission.
The policies, goals and objectives were developed to ensure that Hortonia:
•
Remains a rural place to raise a family for the next 20 years.
•
Limits new development to options that retain the Town’s rural setting.
•
Respects the opportunity for all property owners to receive fair value for their land.
•
Has defined standards for managing growth and maintaining an effective plan.
POLICIES
•
Enforce Town ordinances and the Uniform Building Code to ensure that properties are in good condition.
•
Utilize the patterns presented on the Future Land Use Maps as a guide for development approvals.
•
Require new subdivisions to provide abundant green space (>40% of site) and access to planned trails.
•
Provide a range of housing styles, types and price ranges to support lifestyle needs and preference.
•
Urge landowners to consider home locations sensitive to their rural setting (refer to siting illustrations
provided in the Housing Chapter).
•
Avoid land divisions and traditional subdivision development on prime farmland and wildlife habitat,
unless conservation-based and at least 50 percent of farmland or wildlife habitat is preserved.
•
Prohibit residential development in floodplains, wetlands and environmentally sensitive areas.
•
Encourage “low impact” development, including conservation subdivisions, within the Town to reduce
stormwater runoff and flooding.
•
Require pedestrian and bicycle access and amenities (i.e., trails and sidewalks) to be considered as part of
all residential development projects. This includes considering location choices for developments catering
to individuals of all ages that provide opportunities to walk or bike to important destinations like schools,
parks and shopping.
•
Single lot residential development should be regulated on the State highway system1.
1
Single lot residential development should be directed away from the State highway network. This system consists
of principal arterials whose function is to provide efficient mobility for through traffic trips, with no or limited land
use access to eliminate or minimize traffic conflicts at driveways or local streets. The State highways generally carry
high traffic volumes at higher speeds and consequently are not appropriate areas for residential development. As
more and more driveways are added to the State highway system, it is necessary for speeds to be reduced for safety
reasons, thus defeating the function of the principal arterial.
12-3
HOUSING GOAL #1
Maintain the environmental assets and rural character of the community so that it continues to be an attractive place to live.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
SUPPORTING OBJECTIVES
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Identify and map primary and secondary conservation
Ag., Nat. & Cult.
areas in the Town using the maps from this plan as a
UW-Extension
WDNR
2007
Resources
starting point.
Maintain a local subdivision ordinance to permit
Town Board
Town Budget
2007
Land Use
conservation subdivision developments.
Educate new Town residents moving into the area about
what it means to live in the country.
a. Develop “welcome” packet for prospective and
new homebuyers in the area. Have local
Implementation
Local Realtors
Town Budget
2010
realtors and area builders distribute this packet.
b. Provide information about available services
and amenities on a Town webpage.
Issues &
Opportunities
Consider increasing the open space requirement in all
new residential subdivisions from 5% to require 20% of
Ag., Nat. & Cult.
Town Board
NA
2009
the total area of all new platted residential development
Resources
to be open space.2
Land Use
RELATED
CHAPTERS
Land Use
Implementation
Land Use
Implementation
HOUSING GOAL #2
Preserve or improve the quality of existing housing and maintain housing values over time.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Update the Town Subdivision Ordinance to encourage
Plan
Town Budget
developers to approve covenants that ensure homes
Commission
located within subdivisions are consistent in size.
Educate residents about the importance of property
maintenance.
a. Develop articles for a Town newsletter (or
Town Building
website) that highlight property maintenance
Inspector,
techniques and benefits.
School
b. Coordinate with the area school districts, local
Districts,
Town Budget
churches and community service organizations
Churches,
to provide volunteer services on “Make A
Service
Difference Day,” as well as a regular program to Organizations
assist seniors and disabled residents in need of
home maintenance services.
Conduct an internal review of Town codes and
Plan
Town Budget
ordinances every five years to consider amendments to
Commission
address housing concerns.
MILESTONE
DATE
2009
2010
2011, 2016,
2021
2
The Town of Hortonia is a primarily rural community. In order to remain a rural community and yet accommodate residential
development, it is recommended that all residential subdivisions and other clustered residential development be required to
incorporate open spaces into the proposed development.
12-4
HOUSING GOAL #3
Provide housing choices for residents in all stages of life (i.e. starter homes, family homes, senior housing, etc.).
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
WI Housing &
Econ. Dev.
Support existing efforts and consider new programs that
Authority
will provide additional elderly and disabled resident
Issues &
housing opportunities and services in Hortonia.
(WHEDA)
Opportunities
Private
2012
a. Encourage developers to locate a facility in the
Developers
WHEDA
Town.
Implementation
Foundation
b. Survey seniors to understand the needed
services.
Housing
Grants
Coordinate with neighboring communities to ensure that
Outagamie
Intergovernmental
NA
Continuous
housing choices are available to meet the different needs
County
of residents.
RELATED
CHAPTERS
Land Use
Implementation
Intergovernmental
HOUSING GOAL #4
The Town of Hortonia enjoys a manageable rate of housing development.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Investigate the potential for establishing a growth
management ordinance to provide for subdivision
Plan
Town Budget
phasing requirements, building permit limitations and
Commission
mapped annual growth boundaries.
Consider revisions to local building and mechanical
Plan
Town Budget
codes to encourage energy efficient housing choices.
Commission
Coordinate with neighboring communities and Outagamie
and Waupaca Counties to implement a regional housing
Outagamie
Realtors
strategy that directs the bulk of new housing development
County &
Association
to urban vs. rural areas. This effort will involve summits
ECWRPC
every other year to discuss plan implementation efforts
and challenges.
MILESTON
E DATE
2007
2011
Odd # Years
beginning in
2007
12-5
Transportation Agenda
It is Hortonia’s vision that residents will enjoy safe roads with minimal traffic congestion and safe
bike/pedestrian routes and trails. The Town has limited control over County roads and State highways, so
the goals, objectives and policies in this plan are related to actions that the Town can control. The Town
of Hortonia will work, in accordance with the Intergovernmental Cooperation Chapter, with Outagamie
County and WisDOT to ensure that adequate community transportation facilities are available to serve the
area.
POLICIES
•
Promote opportunities for walking, hiking, and biking to enjoy the natural areas and rural character
of the community.
•
Discourage the development of roadways in environmentally sensitive areas, such as wetlands,
floodplains, prime agricultural lands and soils with severe engineering limitations.
RELATED
CHAPTERS
Implementation
Utilities &
Community
Facilities
Intergovernmental
TRANSPORTATION GOAL #1
Maintain and improve Town Roads in a timely and well-planned manner.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
In accordance with State law, using PASER, continue to
update road ratings, as required. Seek to increase local
Outagamie
Town Budget
County
funds for road maintenance to support PASER
recommendations.
Continue to use a Capital Improvements Plan, PASER
results, traffic counts, and accident rates to coordinate
Outagamie
and plan for annual roadway improvements and
Town Budget
County
maintenance as well as other capital projects (i.e., Town
building upgrades, equipment purchases, etc.).
Identify all Class B highways in the Town of Hortonia and
Outagamie
consider adopting a Town ordinance to establish
Town Budget
County
additional roads as Class B Highways.
MILESTONE
DATE
Continuous
2006
2007
Provide a greater range of transportation choices, including bicycle routes and trails to meet the needs of Town residents.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
ECWRPC,
Intergovernmental
Using the Transportation Network Map and Plan, pursue
WisDOT,
development of recommended bicycle routes (along CTH
Outagamie
WisDOT
2007
Utilities &
TT and CTH T), extension of the WIOUWASH trail along
County, Town
Community
STH 15 (and/or the Wisconsin Central Limited rail
of Mukwa,
Facilities
corridor) and the planned greenway trail along CTH M.
Hortonville
Require that all new residential subdivisions consider
trails and paths within the project to provide safe and
Housing
convenient opportunities for walking, and connections to
Town Attorney
Town Budget
2008
planned trail and path systems so as to ensure the
Land Use
creation of a network of pedestrian and bicycle trails and
paths throughout the Town.
Support grant applications to develop the recommended
Outagamie
WisDOT
2009
Intergovernmental
trail and bicycle routes through the Town and County and
County
seek grants to support local efforts for trail connections.
12-6
Keep residents informed of pending transportation improvements.
RELATED
CHAPTERS
Issues &
Opportunities
Implementation
Provide information about Town road improvements at
public meetings.
Provide information about transportation improvements
on a Town website, via newsletters, and other media
sources as needed.
WisDOT &
County
POTENTIAL
FUNDING
SOURCE
WisDOT &
County
Town Clerk
Town Budget
Web Site by
2010
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
WisDOT
Town Budget
2011
Outagamie
County
County Budget
Continuous
Town Attorney
Town Budget
2008
CHAMPION /
PARTNER
MILESTONE
DATE
As Needed
Support the long-term viability of area roads.
RELATED
CHAPTERS
Housing
Land Use
Implementation
Intergovernmental
Housing
Land Use
Require larger setbacks by updating the Town Zoning
Ordinance to create an overlay zone along State highway
rights-of-way to ensure adequate available space for
future expansions.
Continue to support the efforts of law enforcement
officials to achieve heightened enforcement for required
stops and speed limits along area roads.
When developing the Hortonia Subdivision / Land
Division Ordinance, consider requiring that residential
developers complete traffic impact analysis for new
subdivisions to ensure that the road network can
accommodate the additional traffic volumes resulting from
the proposed development.
Develop the transportation network in accordance with adopted land use plans, economic considerations, physical constraints, and
community desires to meet local travel needs.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Develop and maintain an Official Map to plan for roadway
Outagamie
Town Budget
2009
Land Use
extensions and improvements over time.
County
Encourage WisDOT, WDNR, Outagamie County, and
ECWRPC to directly notify residents and businesses of
See Objective
See Objective
Continuous
Intergovernmental
anticipated transportation projects, as well as provide
regular work schedule updates.
Review the Transportation Network Map and Plan
Planning
2011, 2016,
Land Use
provided in this chapter at least every five (5) years to
Town Budget
Consultant
2021
ensure that it accurately reflects changes.
Partner with the County, ECWRPC, WisDOT and the WDNR to plan and coordinate transportation improvements.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Provide copies of this plan and subsequent updates to
Town Clerk
Town Budget
Continuous
Intergovernmental
WisDOT, ECWRPC, and Outagamie County.
Work with WisDOT, Outagamie County, and ECWRPC to
Intergovernmental
identify and designate Town roads as Wisconsin Rustic
See Objective
Town Budget
2015
Roads.
12-7
Utilities & Community Facilities Agenda
The Utilities and Community Facilities policies, goals and objectives are related to actions that the Town
can control. Other agencies, private companies and Outagamie County will establish their own objectives
and priorities for the future. The Town will work in accordance with the Intergovernmental Cooperation
Chapter and with neighboring communities, school districts and the County to ensure that adequate
community and utilities facilities are available to serve the area. Supporting policies are provided here:
POLICIES
•
Pursue shared service opportunities when mutually beneficial (i.e. cost savings) to improve the
efficiency and quality of utilities and community facilities.
•
Locate park, trail and open space areas throughout the community to ensure all neighborhoods have
access to recreational choices.
•
Encourage the involvement of citizens in the planning and improvement of Town parks.
•
It is the policy of the Town of Hortonia to ensure that all Town residents are provided with necessary
utilities and community facilities.
•
It is the policy of the Town of Hortonia to ensure that all Town residents are aware of available
community facilities and services.
•
Require developers to pay their “fair share” for improvements needed to support new development
requests.
UTILITIES AND COMMUNITY FACILITIES GOAL #1
Provide efficient facilities to serve the needs of the Hortonia community.
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
Land Use
Complete a facilities assessment of the historic Town Hall
building to consider space needs/reallocation for Town
offices and storage as well as desirable communication,
HVAC and other technology upgrades. Complete desired
improvements.
Architect
Rural
Development
Community
Facilities Grant
2008
Implementation
Evaluate Fire Hall facility to insure it meets the needs and
requirements of the Town.
Town Board
Fire
Administration
Grants
2015
Town Board &
Internet
Providers
Developers
2012
RELATED
CHAPTERS
Land Use
Establish high-speed Internet access in the Town.
12-8
Ensure that all Town development is served by efficient, cost-effective utilities and community facilities
within the Town’s capacity to provide such services.
POTENTIAL
RELATED
CHAMPION /
FUNDING
CHAPTERS
PARTNER
SOURCE
Expand use of the Town’s Capital Improvements
Program as a central tool to implement this
Comprehensive Plan. The CIP should help the Town plan
Town Board
Town Budget
Implementation
for needed utilities and community facilities
improvements, as well as transportation and other
improvements.
Neighboring
Pursue shared service opportunities when mutually
Community &
beneficial (i.e. cost savings) to improve the efficiency and
Town Budget
Intergovernmental
County
quality of utilities and community facilities.
Officials
Explore the potential for adopting local impact fees
Implementation
(compliant with Act 477) to help pay for new construction
Town Board
Town Budget
(parks, schools, Town Hall, etc.).
MILESTONE
DATE
2008
Continuous
2009
Establish a Town park and supporting trails to increase educational and recreational opportunities for Town residents and visitors.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Complete an Outdoor Recreation Plan to define specific
Town Board &
Ag. Nat. & Cult
ECWRPC
2007
locations, amenities, designs and strategies to complete
Neighboring
Resources
Town parks and trails.
Communities
Wisconsin
Stewardship
Pursue State and Federal grant funds and loans to offset
Implementation
Town Board
Grants & State
2008
Town costs for park establishment.
Trust Fund
Loans
Reserve especially suitable areas for future parks, trails
Town Board
Town Budget
2008
Land Use
and utility purposes on an Official Map.
Wisconsin
Engage local environmental groups, youth groups, senior
Town Park &
Stewardship
Continuous
organizations, and other interested parties to aid in the
Recreation
Grants & State
beginning in
Implementation
planning, design and construction of park and trail
Committee
2008
Trust Fund
facilities.
Loans
Wisconsin
Coordinate with neighboring communities and Outagamie
Continuous
Stewardship
Intergovernmental
County to develop mutually beneficial park and recreation
ECWRPC
Grants & State
beginning in
facilities.
Trust Fund
2008
Loans
12-9
As the population grows, continue to ensure that Hortonia is a safe community by meeting or exceeding
recognized standards for public safety.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Hortonville
Fire
Coordinate with neighboring communities to maintain
Hortonia Fire
Administration
As Needed
Intergovernmental
adequate fire department staff coverage.
District
Grants
DNR,
Outagamie
Ag., Cult. & Nat.
Conduct annual groundwater monitoring of wells located
2007
UW-Extension
Resources
within the Town.
County Health
Department
Hortonville
Fire
Evaluate the number, availability and response time of
Continuous
Intergovernmental
Hortonia Fire
Administration
the Hortonville Hortonia Fire District to emergencies.
District
Grants
When new subdivision, commercial, or industrial
development requests are submitted to the Town, submit
Town Clerk
Town Budget
Continuous
Intergovernmental
the requests to the Hortonville Hortonia Fire District for
review and recommendation.
12-10
Agricultural, Natural & Cultural Resources Agenda
The residents of Hortonia value the community’s rural character, scenic landscape, and natural
environment. To respect these attributes, it is important that the community protect its woodland,
farmland and surface waters so they may continue to provide a high quality of life for residents and viable
habitat for flora and fauna. Residential and commercial development should occur in harmony with the
Town’s natural environment. The Town should also continue to coordinate with neighboring
communities, Outagamie County, and the State of Wisconsin to ensure that its natural resources are
adequately protected for future generations.
POLICIES
•
Preserve the capacity of the most productive agricultural areas.
•
Preserve the natural resource base, primary environmental corridors, and surrounding agricultural
lands that contribute to the maintenance of the ecological balance, natural beauty, and economic well
being of the Town.
•
Enforce zoning requirements to regulate the type and intensity of commercial and industrial
development in the Town to minimize the chances of groundwater contamination.
•
Provide zoning that supports local family farm operations and small specialty farms to maintain
agriculture as a productive part of the rural landscape.
•
Maintain the Town’s rural character by:
– Communicating with local farmers who want to sell their property about options available
through land trusts and conservation development design techniques.
– Limiting residential development to areas with soils to support foundations and septic systems.
– Protecting scenic views by limiting development on hilltops.
– Using the Future Land Use Map to direct development adjacent to new existing development to
discourage habitat fragmentation.
12-11
AG, NATURAL & CULTURAL RESOURCES GOAL #1
Preserve and protect Hortonia’s groundwater to ensure a long-term, viable source of potable water for residents of the Town.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Outagamie
Utilities &
Coordinate with Outagamie County to encourage
Community
County
Health
WDNR
2007
landowners to monitor their wells each year.
Facilities
Department
Establish a requirement in the Hortonia Land Division
Ordinance for the installation of passive monitoring wells,
Utilities &
Outagamie
Private
or piezometers, within new subdivision development
Community
2008
projects.
Establish
a
similar
requirement
in
the
Town
County
Investment
Facilities
Zoning Ordinance related to future commercial or
industrial development.
Identify those areas within the Town where susceptibility
to groundwater contamination is highest, and develop
Land Use
Town Budget
2009
plans to ensure that land use within these areas occurs in UW-Extension
a manner consistent with protecting groundwater.
Wisconsin
Issues &
Outagamie
Develop an information & education strategy aimed at
Environmental
Opportunities
providing Town residents with the tools to protect their
County Health
2010
Education
potable
water
supply.
Department
Implementation
Board Grant
Preserve and enhance wildlife habitat.
RELATED
CHAPTERS
Land Use
Land Use
Land Use
Partner with local land trusts to protect wildlife habitat
areas. Encourage local landowners to pursue
opportunities to protect their land by working with land
trusts.
Coordinate with WDNR to better identify and protect
wildlife habitats, particularly those unique to the Town of
Hortonia.
Establish a network of green corridors thorough the
community to act as wildlife corridors. This effort should
begin with areas protected through shoreland & wetland
zoning, open areas preserved in conservation-based
subdivisions, and the establishment of additional trails
and greenways in accordance with the Future Land Use
Maps.
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
Land Trusts,
WDNR
Stewardship
Grants
Continuous
WDNR
Stewardship
Grants
Continuous
Outagamie
County, WDNR
Recreational
Trails Program
2015
12-12
Maintain open space, natural areas and farmland to preserve the Town’s rural character and support country living.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Using the Future Land Use Map as a guide, direct
residential and commercial development to areas least
Town Board
N/A
Continuous
Land Use
suited for farming with soils that can support foundations
and septic systems.
Consider adopting a requirement to direct individual lot
Developers,
Town Budget
2007
Land Use
development on farmland to the edges of farm fields to
Town Board
preserve contiguous blocks of productive farmland.
Review and revise the Hortonia Zoning Ordinance to
permit additional accessory uses in agricultural areas to
help sustain local farming operations (i.e. roadside
Town Board
Town Budget
2007
Land Use
stands, farmers markets, horse boarding, bed and
breakfasts, etc.) and allow for adequate on-site and
directional signage for these uses.
Update the Hortonia Zoning Ordinance to more effectively
Land Use
regulate local quarry operations, including requirements
Town Board
Town Board
2008
for operation plans.
Consider establishing an overlay zoning district in the
Land Use
Hortonia Zoning Ordinance to protect woodlands and
UW-Extension
Town Budget
2010
water resources in the Town.
Agricultural
Initiate a local education and marketing campaign on a
Development
Town website and in community newsletters and media
UW-Extension
and
2011
Implementation
releases to generate local interest for new agricultural
Diversification
endeavors (i.e. organic foods, stables, orchards, etc.).
Grant Program
RELATED
CHAPTERS
Implementation
AGRICULTURAL, NATURAL & CULTURAL RESOURCES GOAL #4
Ensure that quarries operate in harmony with the rural character of the Town of Hortonia.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Coordinate with local quarry operators to ensure that
operations do not interfere with public health, safety and
welfare and adhere to NR 135. Likewise, local quarry
operations should not distract from the rural atmosphere
of the Town.
a. Develop a “Model Operation Agreement”
Town Budget
Outagamie
between the Town of Hortonia and all local
and Shared
County and
quarry operations.
Expenses with
Surrounding
b. Seek to approve individual operation
Neighboring
Towns
agreements utilizing the “Model Operation
Communities
Agreement” as a guide, between the Town of
Hortonia and all local quarry operators. As
needed, hire a consultant to represent the Town
in this effort to ensure that the agreements
protect public health, safety and welfare.
MILESTONE
DATE
12-13
2008
Protect the quality of surface and groundwater.
RELATED
CHAPTERS
Land Use
Intergovernmental
Land Use
Implementation
Land Use
Land Use
Implementation
Housing
Land Use
Housing
Intergovernmental
Housing
Implementation
Create, maintain and enhance natural buffers along
stream banks.
a. Support the efforts of Outagamie County to
enforce stream and lake setback requirements
by enforcing local zoning requirements and
policies established by the Outagamie County
Land and Water Conservation Board
(OCLWCB).
b. Work with OCLWCB, Outagamie County,
WDNR and the Wisconsin Department of
Agriculture Trade and Consumer Protection to
promote and help fund riparian buffers along
streams and lakeshores.
c. Educate residents about the importance of
environmental corridors.
Coordinate with the OCLWCB and WDNR to implement
agricultural and residential best management practices to
reduce nonpoint source water pollution.
Encourage farmers to use available manure management
technologies.
Encourage residents to replace lawns with native species
and use rain gardens to encourage infiltration of
stormwater and recharge to groundwater.
Develop and revitalize ordinances aimed at minimizing
paved surfaces such as driveways and roads. This can
be achieved with driveway maximum length standards
that have the added benefit of providing better access to
residences for fire and police protection and subdivision
and private road design ordinances that limit roadway
access and reduce vehicle speed.
Require conservation subdivision principals for all
residential subdivision development occurring in sensitive
ecological areas or prime agricultural lands.
Coordinate with Outagamie County and ECWRPC to
educate homeowners on the need for proper
maintenance of private well and onsite wastewater
treatment systems, periodic testing of private well water,
and planning for eventual well, pump or drain field
replacements.
Strongly encourage or require water conservation and
use of water saving devices such as low-flow
showerheads and toilets within homes.
Coordinate with local quarry operators to ensure that
operations adhere to the requirements of NR 135.
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
OCLWCB
Town Budget
2011
OCLWB &
WDNR
NA
Continuous
NA
Continuous
Town Budget
Continuous
Town Board
Town Budget
2008
Town Board
NA
2009
Outagamie
County &
ECWRPC
Landowners
2010
Outagamie
County
Landowners
2010
Town Board
NA
Continuous
Local Farmers
Agriculture
Committee
UW-Extension
Local
Landowners
12-14
Preserve and protect the historic resources of the Town to promote the educational, cultural, and general welfare of residents of
Hortonia and provide for a more interesting, attractive and vital community.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
County & State
Coordinate with the Wisconsin Historical Society and
State Historical
Land Use
Outagamie Historical Society when considering long-term
2008
Historical
Society
plans for the Town Hall (plans may include relocation).
Society
Work with residents and other interested groups to
County
State Historical
inventory historic properties and locations in the Town of
Implementation
Historical
2011
Hortonia. Share this information with the State of
Society
Society
Wisconsin Architecture and History Inventory.
County
Maintain the historic resources of the community by
State Historical
Implementation
encouraging landowners to apply for grants and official
Continuous
Historical
Society
historic site designation through the State of Wisconsin.
Society
County & State
Adopt a historic preservation ordinance, in cooperation
Town Budget
2013
Implementation
Historical
with the State Historical Society.
Society
12-15
Economic Development Agenda
Residents demonstrated throughout the development of this plan by various means (i.e. SWOT) that
economic development is not paramount in Hortonia. They would prefer that new development occur in
the already denser areas of New London and Hortonville where infrastructure is currently in place and can
better accommodate the new business. Residents like the fact that they are near business and services
(found in Green Bay and the Fox cities), but do not want those businesses in Hortonia. They envision the
future of Hortonia to resemble the Hortonia of today, a rural residential community
POLICIES
•
Follow the pattern on the Future Land Use Maps when evaluating locations for new residential
business development and to preserve suitable land for agricultural uses (i.e. giving development
priority to lands where there is no history of farming and land that is inaccessible or too small to
farm).
•
Support agriculture and tourism as preferred industries to provide local economic revenue at a
minimal cost of service (i.e. infrastructure).
•
Facilitate the establishment of agri-business and home-based businesses with concise ordinances that
address consistency and compatibility with the character of the surrounding area, maintain the rural
appearance of the landscape and minimize potential negative impacts (traffic, noise, odor, glare,
signage, parking, truck deliveries, etc.).
ECONOMIC DEVELOPMENT GOAL #1
Preserve productive agricultural land for long-term farm uses.
RELATED
CHAPTERS
Land Use
Land Use
3
Restrict non-farm residential development to a low
density in accordance with local zoning requirements.
Protect farming operations from incompatible adjacent
land uses by revising the subdivision ordinance to require
developers to consider prevailing winds, buffering
requirements and access issues when permitting
development adjacent to farm areas.
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
Town Board
Not Applicable
Continuous
Agricultural
Committee3
Town Budget
2012
The establishment of a Town of Hortonia Agricultural Committee is recommended in the Agricultural, Natural and
Cultural Resources Element.
12-16
Maintain farming as the economic base of the community.
RELATED
CHAPTERS
Ag., Cult. & Nat.
Resources
Land Use
RELATED
CHAPTERS
Issues &
Opportunities
Implementation
Ag., Cult. & Nat.
Resources
Direct farmers seeking to innovate or modernize their
operations to information and resources available through
the UW-Extension by providing a link on a Town
webpage.
Adopt minor amendments to the local zoning ordinance
to more clearly permit accessory uses and structures in
agricultural areas to support value-added opportunities
for local farmers (i.e. roadside stands, home occupations,
corn mazes, bed and breakfasts, petting zoos, farmer-fora-day camps, etc.).
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
Agricultural
Committee
UW-Extension
Begin in 2009
Agricultural
Committee
Town Budget
2013
Encourage local economic development opportunities that exist
in harmony with Hortonia’s rural atmosphere and support the local tax base.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Create a Hortonia webpage to function as a targeted
economic marketing tool for desired local business
endeavors.
a. Provide demographic, market, site locations,
cost, and other information about the
Town Budget &
community for prospective entrepreneurs.
Development
b. Include information from this plan with respect
Town Clerk
Application
to visions, strengths and the survey results.
Fees
c. Maintain a list of current businesses.
d. Provide copies of Town meeting agendas and
minutes.
e. Post application forms and information for
residents/landowners to review prior to
hearings.
Update the sign ordinance and lighting requirements in
Town Attorney
the Hortonia Zoning Ordinance to reflect the residential
and Planning
Town Budget
character of the community when permitting business
Consultant
uses.
Coordinate with local farmers to establish a regional
Agricultural
farmers market to showcase local agricultural products in Committee and
Town Budget
Hortonia and surrounding communities or participate
Hortonville &
more in existing markets in Appleton, Green Bay, etc.
New London
MILESTONE
DATE
12-17
2007
2009
2010
Land Use Agenda
The Implementation Chapter (Chapter 12) summarizes all of the goals, objectives and policies for the
Town of Hortonia, including recommended ordinance revisions and intergovernmental agreements to
support the development pattern presented on the Future Land Use Maps. Nearly all of these goals,
objectives, and policies relate directly to land use.
POLICIES

The Town of Hortonia will seek to preserve the rural character of the community by working with
land owners, farmers, Outagamie County, WDNR, and others by ensuring that future
development in the Town occurs in ways that minimize negative affects to natural and
agricultural lands.
LAND USE GOAL
Maintain the rural character of the Town of Hortonia.
RELATED
CHAPTERS
Implementation
Implementation
Implementation
Ag., Cult. & Nat.
Resources
Implementation
Implementation
Implementation
Housing
Implementation
Direct residential and commercial development to those
areas identified on the Future Land Use Maps.
Restrict development within the Rural Character District
to areas that are not classified as prime agricultural soils
consistent with the definition provided in the legend
portion of this chapter.
Reduce fragmentation of environmental features and
corridors that affect the migration patterns of animals and
the overall rural and natural attributes of the community
through creation and adoption of a Critical Areas Overlay
in the Hortonia Zoning Ordinance.
Amend the Hortonia Zoning Ordinance to provide
requirements related to exterior lighting, signage, and
landscape buffering to protect the Town’s rural character.
Amend the Hortonia Zoning Ordinance district
requirements to address the issues and concerns
highlighted in the Current Land Use Chapter.
Develop site plan review standards and a process to be
incorporated into the Hortonia Zoning Ordinance.
Consider adopting a growth management policy. Such a
policy may limit final subdivision plat approval to no more
than 20 acres per year to accommodate growth at a rate
consistent with official State projections. This limit on new
subdivision development will also help to maintain open
spaces, retain the Town’s rural character, and allow for
modest growth that can be served by existing or planned
future infrastructure (i.e. roads, schools, groundwater,
garbage collection, etc.). The Town Board may have the
right to make exceptions to this limit based on market
demand for additional acreage. Likewise, if less than 20
acres of subdivided property receives final plat approval
in a given year, the Town Board may choose to carry
over the balance to future years.
CHAMPION /
PARTNER
POTENTIAL
FUNDING
SOURCE
MILESTONE
DATE
Landowners
NA
Continuous
Landowners
NA
Continuous
WDNR
Town Budget
2008
Town Attorney
Town Budget
2010
Town Attorney
Town Budget
2010
Plan
Commission
Town Budget
2012
Plan
Commission
NA
2013
12-18
Intergovernmental Cooperation Agenda
The goals, objectives and policies provided in this section generally seek to enhance the lines of
communication between area governments. This approach will help to create an environment where
cooperation is possible and conflicts are minimized.
POLICIES
•
The Town of Hortonia will seek to cooperate with all neighboring municipalities, Outagamie and
Waupaca Counties, ECWRPC, state agencies and school districts for mutual benefit.
INTERGOVERNMENTAL GOAL #1
Hortonia will maintain and see additional opportunities to improve communication with neighboring communities, the school districts, the
WDNR, WisDOT, Outagamie County, ECWRPC and other intergovernmental partners.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
The Town will consider an Intergovernmental
Communication Program that opens lines of
communication to encourage coordinated planning
Land Use
efforts, particularly at shared boundaries. This program
Economic
will include the following elements:
a. Every other year the Town of Hortonia will host
Development
See Objective
Town Budget
Even # years
an intergovernmental workshop with the
Utilities &
governments and agencies identified in this
Community
chapter to discuss concerns, plans, exchange
ideas, report implementation achievements, and
Facilities
appoint action teams to work on issues over the
next two years.
Continue to actively participate in the comprehensive
Intergovernmental
planning activities of neighboring communities,
Town Board
Town Budget
Through 2010
Outagamie County and ECWRPC.
Utilities &
Participate in the planning activities of the school districts,
Community
particularly with respect to expansion and building of new
Town Board
Town Budget
Continuous
Facilities
facilities.
RELATED
CHAPTERS
Land Use
Utilities &
Community
Facilities
Resolve annexation and boundary disputes in a mutually beneficial manner.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Pursue the development of boundary agreements with
the City of New London and the Village of Hortonville to
Town Board
Town Budget
establish expansion areas for a minimum of 10 years.
Consider opportunities for shared service agreements
between the City of New London, Village of Hortonville
Town Board
Town Budget
and Town of Hortonia to potentially extend sewer and
water service to portions of the Town.
MILESTONE
DATE
12-19
2015
2016
Seek new ways to coordinate and share community facilities and services with neighboring communities, the school districts and
Outagamie County.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Consider opportunities when signing contracts with
private companies to coordinate with neighboring
Utilities &
communities and the school districts that need similar
Town Board
N/A
Continuous
Community
services (i.e. plowing, resurfacing, etc.) and then
Facilities
negotiate with the private company for a reduced cost
based on the larger project volume.
Pursue opportunities to purchase expensive road
maintenance equipment jointly with neighboring
Transportation
communities that can share the equipment in exchange
Town Board
N/A
Continuous
for paying a portion of the purchase and maintenance
costs.
Consider opportunities to lease existing Town equipment
to generate revenue for the Town and avoid situations
Town Board
N/A
Continuous
Transportation
where neighboring communities and the school district
own similar equipment that is underutilized.
Coordinate with surrounding communities, to consider
snowplowing schedules that efficiently meet the needs of
Transportation
area residents. This may involve using Town equipment
Town Board
N/A
Continuous
to plow portions of City streets (and vice versa) to
maximize efficiencies and minimize costs.
Investigate opportunities to provide garbage collection
Utilities &
and recycling more efficiently by cooperating with
Community
neighboring communities and the school districts to
See Objective
N/A
Continuous
Facilities
coordinate collection times and contract negotiations with
private providers to secure costs savings.
The Town, school districts and other public and private
entities should explore joint use agreements concerning
Utilities &
the use of recreational facilities in order that the
See Objective
N/A
2009
Community
advantages of such an agreement can result in
Facilities
avoidance of facility duplication and a greater diversity of
recreational opportunities
12-20
Implementation Agenda
POLICIES
•
It is the policy of the Town of Hortonia to use its comprehensive plan as a central tool in local
decision-making.
IMPLEMENTATION GOAL #1
To ensure that the Town of Hortonia Comprehensive Plan is an effective tool for making local land use decisions.
POTENTIAL
RELATED
CHAMPION /
MILESTONE
FUNDING
CHAPTERS
PARTNER
DATE
SOURCE
Annually review the goals and objectives presented
Issues &
throughout this chapter to assess implementation
Town Board
Town Budget
Annually
Opportunities
success and consider additional objectives.
As available, provide updated information to supplement
the plan information (i.e. updated Current Land Use Map,
Town Board
Town Budget
Continuous
All Chapters
Zoning Map, updated Transportation Network Map,
groundwater study information, etc.)
RELATED
CHAPTERS
Land Use
Land Use
Housing
Land Use
Land Use
IMPLEMENTATION GOAL #2
To ensure that the Town of Hortonia Ordinances are effective tools for making land use decisions.
POTENTIAL
CHAMPION /
FUNDING
PARTNER
SOURCE
Create an Official Zoning Map based on a complete
Town Board
Town Budget
review of Town zoning approvals.
Review the time a building permit is valid in order to
Building
Town Budget
prevent a situation whereby development is initiated, but
Inspector
not completed.
Revise the Town of Hortonia Subdivision Ordinance
regarding phased development to promote orderly
Town Board
Town Budget
development of commercial and mixed-use areas in
accordance with the Future Land Use Maps.
Complete a comprehensive update of the sign ordinance
to address signs permitted in each zoning district and
planned use area outlined on the Future Land Use Maps,
consider applications of new sign technology (i.e.
Town Board
Town Budget
changeable message boards), more clearly address
requirements for institutional signage and provide
expanded definitions.
Town Board
Require a market feasibility analysis be submitted for new
Outagamie
Town Budget
non-residential development in the Town.
County
MILESTONE
DATE
12-21
2007
2010
2007
2007
2007
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APPENDIX
Introduction
The Appendix Includes:
•
•
•
•
The Adoption Ordinance
The Public Participation Plan
The Community Survey and Tabulated Results
Visual Perception Survey
Town of Hortonia Comprehensive Plan – Appendix
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Town of Hortonia
Smart Growth
Public Participation Plan & Adoption Procedures
Introduction
The purposes of this Public Participation Plan are
• to ensure members of the Hortonia Community have full opportunity to contribute to the
development of its Town of Hortonia Comprehensive Plan and that “all voices will be
heard,”
• to keep the public continually informed during the development of the Town of Hortonia
Comprehensive Plan, and
• to meet the requirements of Wisconsin’s “Smart Growth Law (Wis. Stat. §
66.1001(4)(a)).
Purpose and Intent
The purpose of this public participation plan is to foster public participation— including open
discussion, communication programs, information services and public meetings for which
advance notice has been provided—in every stage of the preparation of the Town of Hortonia
Comprehensive Plan. These written procedures provide for a wide distribution of proposed,
alternative or amended plan elements and provide an opportunity for written comments on the
plan to be submitted by members of the public to the Town and for the Town to respond to such
written comments. The intent of these procedures is to inform the public that resides in and near
Hortonia, as well as all other stakeholders and potentially affected entities (both private and
public), of opportunities to participate and to provide these people and entities with multiple,
alternative methods for participating.
Planning Commission Meetings
The Planning Commission will include opportunities for public participation on the agendas for
all of its planning meetings. Meeting agendas will be posted by the commission’s chairperson
(or her or his designee) at Town Hall (and other official locations) at least 24 hours before the
scheduled start of each meeting.
Kick-Off Meeting
The Planning Commission will use mailed post card invitations to local land owners, the
project web site, and a general media release to invite the public to attend a “kick-off”
meeting. At this meeting, the public will be informed of future opportunities to
participate in the planning process. In addition, those in attendance will be asked to
identify qualities of Hortonia that they value and to identify Hortonia’s strength’s,
weaknesses, opportunities, and threats. Results from the Town’s survey will also be
presented at this meeting along with some basic 2000 U.S. Census Data.
Vision Session
After the Kick-Off Meeting, the Planning Commission, business owners, residents and
other stakeholders will work to develop an overall 2025 vision for the Town of Hortonia,
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as well as, individual visions for each of the required Smart Growth Elements (e.g.
housing, transportation, economic development, intergovernmental cooperation, land use,
utilities & community facilities, agricultural, natural & cultural resources,
implementation). Together, these visions will serve as the mission for planning in
Hortonia. They will describe desired future conditions in the Town. This meeting date
will be announced at the kick-off meeting and on the project web site.
Intergovernmental Meeting
In addition to an announcement on the project web site and a media release, OMNNI
Associates (the Town’s planning consultant) will send invitations to the
intergovernmental meeting to:
▪ Hortonville and New London School Districts;
▪ Clerks of neighboring towns, Outagamie County, Waupaca County, Village of
Hortonville and City of New London;
▪ East Central Wisconsin Regional Plan Commission;
▪ The Outagamie County Planner; and
▪ Representatives of the Wisconsin Department of Transportation and the Wisconsin
Department of Natural Resources.
At the meeting, participants will be given the opportunity for mutual exchange of ideas
and recommendations to address any conflicts. This meeting will include a “visioning”
exercise to facilitate discussion among participants.
Element Workshops
For these meetings, an announcement will be posted on the project web site, an
announcement will be officially posted at the Town Hall, and identified stakeholders with
an interest in a particular element will be invited to attend the particular plan element that
is the subject of the workshop. At each workshop, participants will review and discuss a
preliminary draft of the relevant chapter of the plan.
Map Forum
The Planning Commission will use a media release, a mailed postcard invitation to local
landowners, and the project web site to invite the public to attend a map forum. During
this event, participants will have the opportunity to view maps from the plan. In addition,
OMNNI Associates will facilitate a “cognitive mapping” exercise in which participants
will be invited to draw their own future land use maps of the Town.
Media Releases and Web Sites
Periodically during the planning process, media releases will be provided to area
newspapers to publicize the planning program. In addition, an interactive web site will be
provided via links from the OMNNI web site (www.OMNNI.com) in an effort to keep
the public informed.
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The web page will include meeting schedules, summaries of past meetings, draft maps
and plan chapters, and general education materials about the Smart Growth Law. A
hyperlink to an e-mail address will be available for interactive feedback on the
Comprehensive Plan. The site will be updated at least once a month to ensure that the
information was current.
Open House
The purpose of the plan “open house” is to display the plan maps and text in an informal
setting. The maps and plan text will be on display for interested residents to review at
their own pace. This meeting will allow participants to share their ideas in a setting that is
less formal than a public hearing.
Public Hearing
The Town will use the project web site, a media release and official postings to invite the
public to attend the public hearing that will precede formal adoption of the plan by
ordinance by the Town Board. At the public hearing, the OMNNI Associates will
summarize:
(1) why the project is being done in the first place,
(2) the range of alternatives along with the recommended alternatives,
(3) an inventory and evaluation of the impacts of each alternative, including the
interests and who will experience those impacts, and
(4) reactions to the proposed course of action.
Following this presentation, the public will have an opportunity to testify about the plan.
Public Meetings, Notices and Comment
All meetings on the comprehensive plan shall be open to the public and duly posted pursuant to
Wis. Stat. § 985.02(2). The public notice announcing the required public hearing on the plan
adoption ordinance shall be published as a class 1 notice, pursuant to Wis. Stat. § 985.02(1), at
least 30 days prior to the hearing. The class 1 notice shall include the following:
(1) date, time and place of the hearing,
(2) the adoption ordinance
(3) the name of the representative who may provide additional information regarding the
plan, and
(4) where and when a copy of the recommended comprehensive plan and ordinance may be
viewed prior to the hearing, and how a copy of the plan may be obtained.
Copies of the Recommended Town of Hortonia Comprehensive Plan and adoption ordinance
shall be made available for viewing by the general public for the full 30-day comment period.
Copies of the recommended plan and adoption ordinance shall be available at the office of the
Town Clerk, at the Hortonville Public Library, 102 West Main Street Hortonville, Wisconsin
54944, Hortonville, WI 54961 and on the OMNNI web site (www.OMNNI.com). Members of
the public who want to obtain their own copy of the recommended plan may submit a written
request and pay duplication costs.
X-6
A copy of the plan and adoption ordinance shall be sent to neighboring units of government,
school districts serving residents of the Town, Outagamie County, East Central Wisconsin
Regional Planning Commission, Wisconsin Department of Natural Resources, Wisconsin
Department of Transportation, the Wisconsin Land Council (c/o the Wisconsin Department of
Administration) at least 30-days prior to the plan public hearing. Special notification letters of
plan availability will also be sent to local quarry operators.
After the notice of the public hearing has been published, those wishing to submit written
comments on the plan may do so until one week prior to the public hearing. Written comments
on the recommended plan should be submitted to the Town Clerk and/or OMNNI Associates.
Written comments received prior to the public hearing will be addressed at the hearing and will
be given the same weight as oral testimony. A review of the proposed revisions of the
Recommended Town of Hortonia Comprehensive Plan will be completed at the public hearing.
All approved revisions will be posted on OMNNI Associates’ web site in the meeting summary
and included in the official minutes of the public hearing.
Plan Adoption
Town Board –
Based on the recommendation of the Town Planning Commission, the Town Board, will host a
public hearing to consider comments on the plan document and the adoption ordinance. By
majority vote, the Town Board shall enact an ordinance adopting the Town of Hortonia
Comprehensive Plan.
A copy of the adopted ordinance and adopted plan shall be sent to neighboring units of
government, school districts serving residents of the Town, Outagamie County, East Central
Wisconsin Regional Planning Commission, Wisconsin Department of Natural Resources,
Wisconsin Department of Transportation, the Wisconsin Department of Administration and the
Wisconsin Land Council.
Planning Commission –
The Town of Hortonia Planning Commission shall assist the Town Board in implementing the
provisions of the Town of Hortonia Comprehensive Plan.
From time to time, but not less than once every five (5) years, the Planning Commission shall
review the comprehensive plan for potential changes, additions or corrections. The Planning
Commission shall also be responsible for recommending comprehensive plan amendments to the
Town Board on a majority vote of its entire membership.
X-7
X-8
X-9
X-10
X-11
X-12
X-13
X-14
X-15
X-16
X-17
X-18
X-19
X-20