TOWN OF RUSHFORD COMPREHENSIVE PLAN
CREATING A BUILT ENVIRONMENT THAT MEETS WITH LOCAL SOCIAL VALUES.
8.1
LAND USE
Among the most effective tools a community possesses to influence its
future environment and quality of life is the ability to control and direct
future growth patterns through its zoning and development ordinances,
and its provision of infrastructure to serve newly developing areas.
Through its zoning powers, the Town of Rushford has an opportunity to
guide future growth in a manner that enhances its residents’ quality of life
and fits within its future vision. Misguided use of these tools, however, can
lead to undesired results in terms of land use conflicts, inefficient service
delivery, and a decreased quality of life, among other potential problems.
The foundation for sound decision making and implementation of these
tools is a clear land use plan based upon sound planning principles and
the community’s vision for its future.
This land use plan is intended to illustrate this vision and guide the future
growth and development of the Town over the next 20 years and beyond.
It will serve as a guide for the Town Plan Commission and Town Board
when making land use, zoning, and infrastructure related decisions. It will
also provide direction for private sector property owners and potential
developers when making decisions about the future of their properties
within the Town of Rushford.
The Town must study the suitability of land in order to effectively plan for
efficient and environmentally sound growth. Therefore, the land use
analysis and future land use plan is not limited to properties within the
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Town’s existing developed areas, but looks beyond to consider areas that
might be appropriate for growth over the next 20 years and beyond. In
order to ensure that sufficient growth areas are maintained to
accommodate a reasonable level of development expansion, strategies
must also be implemented to control the development of residential and
commercial growth immediately surrounding key transportation corridors
and environmentally sensitive areas. At the same time, the Town of
Rushford has expressed concerns about the impacts of urban
development on rural properties, primarily having to do with storm water
run off onto all properties.
The relationship between the Land Use Element and other plan elements
is extremely important, and coordinating this information is essential in
developing an effective Comprehensive Plan that is useful to the Town and
its constituents. All of the eight other elements of this plan should influence
the decision making process in the approval considerations of new
development proposals. As time progresses this plan must be updated and
coordinated with its balance in order to ensure that local development
preferences are maintained. By statutory law this Comprehensive Plan
must be updated at least once every ten years.
EXISTING LAND USE
Existing development within the Town appears to have occurred in a fairly
traditional fashion to this point. With the exception of three residential
clusters, in the cross-roads communities of Eureka, Wuakau and the
residential concentration of Island Ave & Ferry Lane, new residential
development has generally occurred on roadside parcels that have been
split off of longtime farming operations. While relatively little “leap frog”
development has occurred some concerns exist. As growth and economic
changes in the “Fox Valley” region have occurred, traditional agricultural
lands are slowly being divided into rural residential and “hobby farm” uses.
A map illustrating the existing land use pattern within the Town illustrates
how this pattern of development has contributed to slowly lining its
roadways with residential uses. As these uses have become more
common the local sense of place and rural character have suffered
significant impact via visual aesthetics.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Existing Land Uses and Acreage in the Town of Rushford
Town Zoning
Acreage
Residential (R)
Multi-family Residential (R-2)
Mobile Home (MH-1)
Commercial (C)
Industrial (I)
Village Land Use by
Waste Disposal (W)
Not Tagged (NT)
Farmland Preservation (A-1)
Agriculture (A-2)
Rural Residential (A-3)
Multi-Family
Recreational
1%
7%
107
30
33
75
92
16
300
9,650
4,712
310
Type
County
Zoning
Institutional
General11%
Farming (A-2)
Community Business (B-2)
General Business (B-3)
Institutional and Recreational (P-1)
Rural Agriculture
Residential (R-1)
15%
Suburban Residential (R-2)
15,324
Undeveloped platted lots
Total=
5%
Residential
Acreage
34%
Business Park*
22%
7,274
348
28
90
170
Commercial 42
Total=
5%
7,954
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Residential: Residential development within the Town has predominantly
consisted of detached single-family homes of varying lot sizes. The
current Town zoning ordinance contains a total of two residential zones,
the first of which is exclusively a single-family zone, the second of which
allows for single family uses as well as a multi-family residential uses. The
R-1 Single-Family Residential District contains a minimum lot area
requirement of 40,000 square feet, and minimum lot frontage requirement
of 200 feet. The R-2 Multi-Family Residential District permits lots of 40,000
square feet with 200 feet of minimum frontage.
The distinction between these two zones is very important to consider and
has potential implications for the Town in the future as the State’s Smart
Growth Dividend Aid Program is finalized and implemented. The Dividend
Aid Program is scheduled to be implemented in 2005, and is structured
such that communities that have adopted a smart growth plan and meet
specified criteria earn “points” which are to be considered in the allocation
of State funds. Whether this means that a new funding source will be
established or this will involve the reallocation of existing funds has not yet
been determined. The two criteria that have been established thus far to
earn these points include the creation of lots less than ¼ acre in area, and
the sale of new homes at less than 80% of the median housing costs for
the County within which a community is located. Given these parameters,
the Town recognizes the possibility of establishing a sanitary district in the
surrounding areas of Eureka and Waukau. These services could then
allow for the reduction of the minimum lot size requirement within the R-1
zone to 10,000 square feet or less. A second consideration would be to
make broader use of the R-2 zone to provide opportunities for
development that can earn Smart Growth “points”.
Duplex and multi-family housing is present in a few scattered areas within
the Town, but makes up a relatively small portion of the overall housing
stock. The need for additional senior housing was discussed at the public
land use workshop, as well. As the Housing plan element was discussed
and developed, many issues regarding housing types, lot sizes,
affordability, and specific housing needs were documented and prioritized.
This element should be referenced for these details. With the changing
nature of our society, communities are now faced with meeting the housing
needs of a much more diverse spectrum of family types. Single-parent
households, empty nesters, and childless professionals, demanding
alternatives to the large-lot, detached single-family home and its
associated maintenance, are changing the dynamics of today’s housing
market. This Land Use Plan provides opportunities for the development of
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
a diverse set of housing types in new neighborhoods in order to
accommodate all family types and families of varying incomes.
It does this through its provision of a three level density standard for the
siting of residential dwellings. These three zones are 1) the rural zone
which will allow for a total density of one unit per 20 acres, 2) the transition
zone which will allow for a total density of one unit per 2.5 acres, and 3)
the encouragement zone which will allow for development to occur up to
the carrying capacity of the site limitations. These density zones are based
on the land under ownership as shown in the 2001 Winnebago County Plat
book in order to determine how many units each property owner is eligible
to construct from the date of adoption of this plan forward. Property owners
with large acreage’s will be allowed to develop rural subdivisions but only if
they utilize a cluster or conservation design subdivision technique.
Commercial: Current commercial development is focused in the
downtown areas of the cross-roads communities of Eureka and Waukau.
With the exception of the general store shop and several independent
“garage” type businesses, the commercial businesses in the Town are
each part of a business cluster along the main street corridors of Eureka
and Waukau. These locations are highly suitable and highly visible in the
town. Major transportation roadways bisect each of these communities
making the existing businesses uses of these properties appropriate for
continued use in this fashion and possible expansion in the future.
Another potential opportunity for expanding commercial services in the
Wuakau area involves the newly improved Hwy 91/116, County M
intersection site. With the lands abutting the North East and North West
corners of the intersection already offering some commercial use, and the
lands abutting the south East corner developing into a residential
subdivision, opportunity to develop the South West corner into a major
commercial area exists. If available, the site offers a good opportunity to
invigorate economic activity in the downtown area with new development
and an expanded array of commercial services for Town residents.
Agricultural lands: Agriculture is the predominant land use in the town.
The current town zoning ordinance divides agricultural uses into three
distinctive zones. A-1 “Farmland Preservation District” accommodates the
designated uses of lands under the Wisconsin Farmland Preservation Act
found in Chapter 91 of the Wisconsin State Statutes. Farm dwellings within
the district must have a minimum of 40,000 square feet in area and a
minimum of 200 feet of frontage. The intent of this district is to provide for
the strict preservation and protection of farmlands allowing owners of
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
parcels within this district eligibility for participation in the states farmland
preservation program. The A-2 Agricultural District allows for all uses
customarily incidental to general farming activities. District standards
require a minimum of 40,000 square feet in area and 200 feet of frontage.
It purpose is to conserve good farming areas and compatible or private
uses, and to prevent the uneconomic and uncontrolled spread of
residential development outside the available residential districts which
might result in excessive cost to the township for premature provision of
essential public improvements and services such as sewer, water and
utilities.
The A-3 Rural Residential District is intended to provide a living area in
combination with small scale farming activities along with residential
growth. The district is limited in acreage to those parcels of five acres or
less. Area regulations include a needed minimum of 43,000 square feet
and 200 feet of frontage if no public sewer is available.
PROJECTIONS/EXPECTATIONS
As noted within the Community Profile Report, a peak in the number of
new lots created within the Town in the early 1980s led to increases in the
number of new housing units constructed in the following years. Since
then, however, the number of newly created lots per year has slowed
significantly. While the total number of new lots has slowed in historic
terms, the creation of new lots continues at a steady pace today.
Developing population projections for small communities like the Town of
Rushford is difficult due to the major influence that individual events and
occurrences can have on the community, such as the addition or loss of a
major employer or changes in elected officials and their attitudes toward
growth. As new development is platted and comes on the market, it is
anticipated that the Town will experience a steady rate of growth, fueled by
the area’s proximity to growing urban centers such as Oshkosh, and its
good access to the regional transportation system.
A summery of local historical performance combine with census data
predicts that the Town of Rushford will see the following impacts over the
next twenty years.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Predicted Growth
Scenario
Number of Housing Units
Persons Per Household
Population
Total Number of Parcels
Acres Per Parcel
1990
1995
2000
2005
2010
2015
2020
552
2.76
1,361
1,546
14.57
599
2.72
1,383
1,669
13.50
623
2.68
1,427
1,709
13.03
647
2.63
1,458
1,759
12.49
671
2.58
1,479
1,809
11.99
695
2.52
1,498
1,859
11.53
719
2.48
1,513
1,909
11.10
By adopting this Comprehensive Plan and formulating a vision for its
future, the Town will be in a better position to respond to future growth
pressures if and when they occur.
PHYSICAL ANALYSIS
In addition to the potential impacts of demographic and socio-economic
Number of Acres under Town Zoning Jurisdiction =
Number of "Undevelopable" Acres in the Town
=
Development Limitation
Number of Acres
Slopes greater than 12%
53
Moderate Farmlands
Prime Farmlands
Government Lands
Total "Undevelopable"
1,198
335
946.53
2,532.53
15,324
2,532.53
TOTAL DEVELOPABLE LANDS = 12,791.47
projections the Town of Rushford is seeking to preserve a verity of natural
and physical features which it values and/or recognizes places limitations
on the potential for development. An analysis of these features, which
include 1. prime farmland 2. Slopes in excess of 12 & ½%, 3. wetlands &
flood plain 4. Governmental lands, found that 12,791.47 acres remain for
potential development under the town’s zoning jurisdiction.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
LAND USE PLAN
The future residential land use density map illustrates potential town
residential growth over the next 20 years based upon existing conditions,
discussions at public meetings and direction from the Planning Committee.
At current and projected rates of development, the plan likely illustrates
much more growth than the Town is likely to experience within the 20-year
planning horizon under consideration. The Plan illustrates potential areas
for new development as growth occurs in any one direction, but does not
necessarily advocate or assume full build out of this area within this 20year window. Other than a general recommendation that new growth
occur within and adjacent to the existing cross-roads community limits to
maximize efficiency of land use and Town services, the Plan makes no
recommendations as to which areas should develop sooner than others.
Consideration should be given as to whether or not the Town is interested
in providing guidance and recommendations regarding the character of
future residential development. If efforts are made to develop properties at
higher densities to achieve more efficient development patterns and in
response to the Dividend Aid Program parameters, design issues within
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
these neighborhoods may become more important. The State’s Smart
Growth statutes require that larger municipalities of over 12,500 population
adopt Traditional Neighborhood Development and Conservation
Subdivision Design provisions into their ordinance. Although these
provisions would not be required for the Town of Rushford, they are
certainly options that could be considered and encouraged. Based upon
existing conditions, discussions at public meetings and direction from the
Planning Committee, these types of residential development standards are
in deed desired and appropriate within the Town of Rushford.
The Plan illustrates a potential 35 to 40 acre commercial development at
the southwest end of Waukau along the south side of State Highway 91,
and a potential new access road to the development along the west side of
County M. Strong design standards for properties fronting on each of
these Town entrances should be considered to ensure that these
gateways into the community present a positive first impression. Design
standards could be considered and imposed by the Town through deed
restrictions if the Town is involved in the purchase and development of the
property, through standards incorporated into a new zoning district written
to regulate new commercial development, or through the designation of the
entryway as an “overlay zone” containing standards for landscaping and
site development for all properties along this portion of Highway 91.
Together with standards for new commercial development and
reinvestment in existing developed properties along these corridors, these
elements will help provide an aesthetically pleasing entryway into this
Town communities.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
The plan also illustrates the redevelopment of existing residential uses into
commercial uses within Eureka. In addition the plan calls for the creation of
a senior housing complex on the northeast portion of Eureka, south of the
Fox River. As with other developments within the township appropriate
design standards should be applied to these developments to ensure that
they blend with local land use patterns and establish a main street
environment for local residents.
LAND USE ELEMENT
TOWN OF RUSHFORD COMPREHENSIVE PLAN
In the Utilities and Community Facilities Plan Element, consideration is
given to necessary infrastructure improvements that may be needed to
serve areas illustrated for potential development. One such consideration
is the creation of a sanitary district. As noted above, the Town may wish to
later amend the Comprehensive Plan in response to this information as
warranted.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
LAND USE GOALS:
Goal: Ensure that development standards and ordinances are
consistent with land use policies contained within the
Comprehensive Plan.
Objective:
Study current zoning and land division policies and regulations and update
as needed to ensure consistency with the policies of the Smart Growth
plan.
Consult the policies contained within the Comprehensive Plan prior to
making decisions regarding capital improvements
Update the Town zoning ordinance to incorporate implementation tools
identified within the Comprehensive Plan, as appropriate.
Goal: Promote land uses, densities and regulations that result in
efficient development patterns (traffic, public services, sewer, water,
other).
Objective:
Develop and implement design standards to encourage efficient
development patterns incorporating interconnected street patterns and
limited use of cul-de-sac streets in the Eureka and Waukau communities.
Work with Winnebago County to ensure that street transitions from the
Town to the Town are compatible.
Allow new development to occur only at the densities as illustrated in the
“future residential density” land use map.
Consider the adoption of a Cluster Development ordinance.
Consider amendment of the current residential zoning district regulations
to permit smaller lots.
Adopt policies to ensure development of a good network of pedestrian
routes between new neighborhoods and the existing Town corridors,
particularly next to existing parks and future recreational areas.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Establish maximum driveway length limitations to limit the creation of flag
lots.
Consider engineering review of new CSM’s and Subdivisions in order to
maintain development standards and functional storm water drainage
systems.
Goal: Promote land uses, densities and regulations that result in the
protection of valued resources and recognize existing physical
limitations (prime farmland, slope, woodlands, water, other).
Objectives:
Review and incorporate the findings of the “developable land” analysis
when making decisions on new development proposals.
Conduct site reviews on proposed developments and/or ask for sufficient
documentation so as to ascertain potential impacts to the physical
environment. Negotiate their protection.
Goal: Foster commercial growth in the downtown business
district(s).
Objectives:
Develop a marketing plan to aid in the recruitment of downtown
businesses.
Explore and promote incentive options to encourage businesses to choose
a downtown location.
Encourage downtown revitalization to enhance community character and
downtown business climate.
Evaluate current zoning policies to ensure that traditional design concepts
are promoted and observed.
Address any parking deficiencies in the downtown business area.
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TOWN OF RUSHFORD COMPREHENSIVE PLAN
Identify potential funding sources to assist with planning and implementing
downtown improvements.
LAND USE ELEMENT