Sauk County 20/20 - Volume I: Final Plan Proposal

INTRODUCTION

Sauk County finds itself in the midst of considerable change. Growth pressures from the southern boundary of the county, as well as from prosperous and growing communities within the county are becoming more visible each day. Major transportation changes are also being considered in terms of the U.S. Highway 12 expansion and a possible new bridge at the Merrimac Ferry crossing. In addition, The Nature Conservancy has named the Baraboo Bluffs range as a "Last Great Place," and the United States Department of the Interior considers the Bluffs a National Natural Landmark; signifying its critical stature among the many places worthy of preservation. All of these factors have led to a new interest in the possible role of land use planning for Sauk County.

DEVELOPMENT PLAN NEEDED

The proximity to the Madison metropolitan area has had a profound impact on Sauk County. Population growth alone indicates the magnitude of that impact on the area. From 1970 to 1990, Sauk County has increased in population over 20 percent, from 39,057 to 46,975 persons. It is projected that Sauk County will grow another 20 percent by the year 2020, establishing a county population of approximately 56,205 persons.
(Source: 1990 United States Census and 1993 Wisconsin Department of Administration Demographic Services Center)

The cities and villages of Sauk County will experience even greater growth in the future. For example, the Village of Lake Delton is projected to grow by over 80 percent by the year 2020, from a population of 1,466 to 2,646 persons. In addition, the Village of Prairie du Sac and the Cities of Baraboo, Reedsburg and Wisconsin Dells are all projected to grow by a minimum of 24 percent by the year 2020.
(Source: 1990 United States Census and 1993 Wisconsin Department of Administration Demographic Services Center)

County population is projected to increase in the next 25 years, while the median household size will most likely continue to decrease. The combination of these two factors creates an increasing need for housing in the county. Up to a 52 percent increase in housing units is projected by the year 2020, or approximately 10,600 new households since 1980.
(Source: 1990 United States Census and 1993 Wisconsin Department of Administration Demographic Services Center)

This residential growth has led to a change in the rural character of the county. The residential growth in the unincorporated areas has begun to transform the rural farm areas into rural residential areas. The number of farms has decreased approximately 23 percent in a period from 1969 to 1995, from 2,044 to 1,580. In addition, the amount of total land in agriculture in the county has decreased by 52,175 acres, from 420,175 in 1969 to 368,000 in 1995. It is projected that the rural non-farm population will increase by over 50 percent in the next 15 years. Sauk County can expect to experience a tremendous loss of farmland over the next 30 years, assuming past trends continue. A regression model based on farmland trends from 1972 to 1991 predicts a decrease of approximately 52,360 acres of farmland by the year 2020. (Source: United States Census of Agriculture)

Another indicator of development is the increased economic growth as indicated by employment increases. Sauk County had over a 37 percent increase in the total labor force, from 15,258 persons in 1970 to 24,491 persons in 1990. It is projected that the total labor force will increase by another 56 percent, to 38,341 persons by the year 2020. These employment increases reflect the robust development occurring in the residential, industrial, commercial and retail sectors of the economy. Employment increases are welcomed, but the development that accompanies them is having a profound impact on land use and the provision of services and public facilities by the local and county governments.
(Source: 1990 United States Census and 1993 Wisconsin Department of Administration Demographic Services Center)

To summarize, Sauk County is undergoing considerable change. Population trends, the loss of farmland, the increase in economic opportunities, and the possible transportation projects are all contributors to this change. It has become clear over the last few decades that if a community intends to retain its positive characteristics, while at the same time allowing for growth and change, it must develop a proactive, not reactive, mentality. It must decide what type of future it wants, and take positive steps toward achieving that future; rather than react as change occurs.

SAUK COUNTY COMPREHENSIVE PLAN PROPOSAL

Mission: Develop a comprehensive set of resources and a policy framework to assist the county and local units of government in managing development.

The desired future can only become reality if residents are informed about their options and have a dynamic role in bringing about change; for in a democracy, the power of community and political leaders comes from the people. The planning process provides a method which gives people a voice in their future.

Comprehensive planning represents a process through which the community visualizes the future it wants, and then plans how to achieve this future. Planning brings together the diverse issues facing the community in an attempt to create a common vision. It is not the "vision" of any one group or person, but rather the community as whole; who, having helped create it, have a stake in bringing it about. The planning process is comprised of four essential steps. While each of these steps will be discussed separately, they are not autonomous and are dependent upon each other throughout the entire process. The typical four step planning process can be represented as follows, with each step attempting to address a different question:

Profile Statement - Where are we now?
Trends Statement - Where are we going?
Vision Statement - Where do we want to be?
Action Plan - How do we get there?

Community Involvement

Comprehensive planning is a process in which citizens assume a major role in determining the future of their county. As part of this citizen-based planning effort, people talk about preserving the quality of life they currently enjoy. They begin to answer questions like; "What do we like about Sauk County?" "How do we keep from losing those positive features?" "What things do we dislike and how can we change them?" In effect, neighbors come together to consider how to preserve and enhance the way of life the residents currently enjoy.

Profile Statement

The first step in the planning process is to develop a profile statement. The profile attempts to answer the question "where are we now?" A profile is descriptive and can include both facts and statements of current issues and community values gathered through public participation techniques. Developing a profile involves identifying local characteristics including, but not limited to: geography, population, demographics, employment, political and institutional arrangements, housing, transportation, educational, cultural, and natural resources. Through the profile, values and issues facing the community are identified utilizing existing information collected from various government databases and public participation techniques.

Trends Statement

The next stage of the planning process attempts to answer the question "where are we going?" This step is extremely useful in helping residents generate ideas about the future. Through forecasts, projections and impact studies, attempts are made to determine how the community is expected to change under possible and probable future scenarios. The trends statement is quantitative in nature and often uses technology such as computerized projections and geographic information systems to help communicate alternative scenarios.

Vision Statement

The vision statement is a concrete statement of what citizens want for their future. The vision statement synthesizes the information collected in the prior two steps, about community values and possible future scenarios, to help answer the question "where do we want to be?" This vision statement identifies the preferred future scenario which integrates the diverse interests of the entire community into a common vision.

Action Plan

Once the vision statement is developed, the action plan addresses the question "how do we get there?" The action plan attempts to translate the vision statement into specific steps that must be taken in order to arrive at the vision. Through creating strategies, formulating goals, and developing political agendas and priorities, the action plan represents a means through which the community vision can be achieved.

WHY PLAN?

Provides certainty regarding future development

Citizens and elected officials can better manage Sauk County's future
Planning helps communities decide their own fate
Planning can help the county to reach consensus on what it will be in the future

Saves money

Planning helps make the most of community resources
Coordination through planning helps to reduce costs for local government
Planning can reduce risk

Promotes economic development

Planning will allow Sauk County residents to decide what developments to encourage and what kind to discourage
Planning can promote sound, sustainable development for future generations

Protects the environment

Planning can alleviate negative impacts to individuals and the larger community
Planning can guide conservation and development decisions
Planning can insure the wise use and conservation of Sauk County's resources

Provides responsive government

Planning allows individual citizens to be heard
Planning can stimulate public interest and responsibility
Planning can promote community values
Planning will improve communications between levels of government

PROPOSAL PARTICIPANTS

Taking into account the comprehensive scope of this proposal, a considerable number of financial, political, technical and legal resources will, conceivably, be necessary to complete a project of this magnitude. These resources will include, but are not limited to, the respective county and local government agencies; the Wisconsin Departments of Transportation, Natural Resources, Agriculture, Trade and Consumer Protection; University of Wisconsin-Extension; Sauk County Development Corporation; The Nature Conservancy; Wisconsin Power and Light Company; the private sector (developers, engineers and lawyers); and the Wisconsin State Legislature. It will require a creative mix of financial and technical resources to complete this process. It is anticipated a combination of federal, state, local and private financial resources will be required.

TIME FRAMES

The Master Plan would cover a 20 year planning period. A time frame of approximately four years is estimated as the minimum necessary for project completion.

DELIVERABLES

(Including Implementation) (Revised 5/19/97)

Sauk County Comprehensive Plan document set with report level maps and graphics in digital and hard copy format.

Display size plan maps and graphics.

Rewritten county zoning and subdivision ordinances, with improved administrative procedures and an expanded list of districts to match the planning policy areas established by the plan.

New town level zoning maps with appropriate zoning districts, in digital and hard copy format.

WORK PROGRAM AND BUDGET

(Not including Implementation)

Part One: Time Frame Hours Cost

* County Profile

Data collection 7 months 600 $12,000
Citizen survey 2 months 240 4,800
CAC public meetings 25 meetings 150 3,000
Analysis & writing 4 months 480 9,600
Total Part One 12 months 1,390 $29,400

Part Two: Time Frame Hours Cost

* Trends Proposal

Trends analysis 6 months 600 $12,000
Trends statement 2 months 200 4,000
CAC public meetings 44 meetings 264 5,280
Writing Trends Proposal 1 month 100 2,000
Total Part Two 7 months 1,164 $23,280

Part Three: Time Frame Hours Cost

* Vision Statement

Visioning exercise 3 months 340 $ 6,800
Alternative scenarios 4 months 400 8,000
Policy creation & analysis 3 months 360 7,200
CAC public meetings 24 meetings 124 2,480
Total Part Three 6 months 864 $24,480

Part Four: Time Frame Hours Cost

* Action Plan

Writing Draft plan 12 months 1,440 $28,800
County Summit 1 meeting 20 400
Finalizing Policies 30 meetings 180 3,600
Total Part Four 6 months 1,640 $32,800

Sub-Total Parts One through Four (Staffing costs) $109,960

Direct Costs:

* Public Outreach

County-wide mailings $15,000
Planning newsletter 30,000
Rural Development Institute survey 10,000
Total Public Outreach $55,000

* Technical Assistance

Land use inventory, Data base and
Mapping (staffing) 46,000
Digitizing/GPS development 30,000
Total Technical Assistance $76,000

Sub-Total Direct Costs $131,000

TOTAL COSTS - PLANNING PROJECT (Approximate) $240,960

Sauk County's Commitment:

Staffing and Direct costs (63% of Total Costs) $151,000
Sauk County has committed funding for staffing costs over two and one-half years (1 Planner, 1 Administrator and part-time interns) and some of the direct costs.

Wisconsin DOT's Commitment: $ 50,000

WisDOT has committed funding for direct and technical assistance costs. The staff plans to utilize this funding for the RDI citizen survey ($10,000); some of the costs for the planning newsletter ($20,000) and for some of the costs of the land use inventory and mapping projects ($20,000).

Wisconsin DNR's Commitment: $ 20,000

WisDNR has committed funding for direct and technical assistance costs as well. The staff plans to utilize this funding for some of the costs of the planning newsletter ($10,000) and for some of the costs of the land use inventory and mapping projects ($10,000).

The Nature Conservancy's Commitment: $ 5,300

TNC has committed funding for technical assistance costs. The staff plans to utilize this funding for some of the costs of the land use inventory and mapping projects.

Approximate Difference Between the Total Costs and Commitments to Date $ 14,660

Those remaining needs include funding for the mapping and data base projects. The staff is working with WisDNR and Wisconsin Power & Light Company for data sharing for the mapping and inventory projects.

SAUK COUNTY COMPREHENSIVE PLAN OUTLINE

Introduction
1. Background and Authority
2. Need for a Master Plan
3. Purpose of the Master Plan
4. County Characteristics
5. Regional Setting
6. Study Objectives
7. Planning Process
Community Involvement
1. County-wide Activities
2. Optional Activities
Physical Feature Analysis (Resources list and evaluation, specifically those static and unchanging)
1. Soils
2. Geology
3. Topographic Features
4. Water Resources
5. Sensitive Land Resources
6. Transportation Facilities
7. Public Services and Facilities
8. Historic Sites and Structures
9. Recreation and Open Space
10. Air Quality
Trend Analysis (Resources list and evaluation, specifically those dynamic and varying)
1. Population
2. Economic
3. Land Use (Amount, district and density)
4. Housing
5. Transportation
6. Recreation
7. Agricultural
8. Water Quality
9. Solid Waste
10. Public Services and Facilities
11. Air Quality
Policy Analysis (Inventory existing development implementation tools and evaluate)
1. County
2. Towns
3. City/Village
4. State
5. Federal
Development Management Alternatives
1. Status Quo - Existing Trends
2. Alternative Development Scenarios
  (Variable levels of influence on development, modifying the following factors)
Recommended Development Approaches v
1. Development of Goals and Objectives
2. Development of Policies
3. Definition of Planning Areas
4. Delineation of Planning Area Boundaries
Implementation Actions (Activities to Accomplish Selected Development Approach)
1. Plan/Map Update/Preparation
2. Ordinance/Map Update/Development
3. Training and Education Program
4. State/Federal Policy Changes
5. Mechanisms to Coordinate
6. Public Decision Making