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14 IRAIA I- A. a 0 ', We NP 4V 9&mFu A 2- "o 77 R DO q,, q,ll roll, "13 INW www 4,*v I HE 213 M6 14A A66 1979 MMMNITTMM FW 7 "Viw CHEQUAMEGON BAY CITIZEN ADVISORY PARTICIPATION SOUTH SHORE R. Bruce Larson R. Melstrand CITIZEN ADVISORY PARTICIPATION Barbara Kurten James Schubring Mrs. Irv Anderson James Plets W. D. Maki Linda Ortman Clinton Miller Dorothy Hanson Clayton Beckman Hjalmar Isaksson John R. Sannes Fred Janz Louise Beckman Grace Bolea IR. P. Wallace Ken Larson Jake Beeksma -Kathryn Isa'ksson Reino Hill John R. Leask Mabel Beeksma Marvin Schultesis Laura Popke Albin Larson Andy Beja Bill Lenhart Clarence Olsen Emily Larson Chuck Bille Dale Maki Cheryl Ames Walter Wasmuth Larry Brooke Mathew Kroll Dwight Ames Mildred LaPointe Charles Roberts Lyle Cowley H. S. Deverell Helen Ford Barbara Roberts George Wood Kevin Smith Dick Ford Signe Dana Russ McGillivray Leon Beauchamp Virginia Burtness Floyd Iddings Angelo Nicoletti Lawrence Wachsmuth William Robinson HIGH Eth@_l Idd-ings Sohn Slonski D. M. Grant Edith Merila CORRI Clayton Howk Charles Fetters, Jr. Cleo Grant Don Larson Vincent VanderVenter Joseph Zyrkowski Dennis Baljo John Brubaker Lawrence Ewer Romero Ireland Robert Emery Jeff Miller Mary Ewer Hank Cole Elizabeth Emery Vernon Halverson Robert Jones Susan Brooke Robert Kokenson Carla Kedrowsii June Frey Ralph Osbakken Dick Bodin Dale Berglund Leo Frey Anne M. Osbakken Lowell Ballinger June Blair Clara Frey Joan Wilson L. J. Kozlowski Virginia Hughes Lois Palmer John Wilson William Compton Vermont Johnson Albert Isaksson Helmer Wintturi Shirley Bodin Jim Stephenson Melvin Mehsling Carl Sjonost Virginia Prentice Ed Pajala Alice Sjonost Chris Pederson Hilda Reynolds Eva Baily Sally Langhammer Frank Halverson Everett Hyde Alden Allen Marlene Peterson Ed Weidinger Robert Eckels Verdayne Hanson Lucille Eckels William Bodin Larry Reiten Mike Bonney Dennis L. Bachand C.Gale Nemec Jeffery Swiston Apostle Islands Area-Highway 13 CORRIDOR REPORT By: Northwest Regional Planning Commission in LJJ conjunction with UW-Extension, the Bayfield County Zoning Office, and the Wisconsin Department of Transportation. Funded by: Wisconsin Coastal Management Program November, 1979 TABLE OF CONTENTS Page CHAPTER ONE: The Corridor Context . . . . . . . . . . . . . . . . . . . . . . . . . 1 CHAPTER TWO: The Planning Process . . . . . . . . . . . . . . . . . . . . . . . . 27 CHAPTER THREE: Implementation . . . . . . . . . . . . . . . . . . . . . . . . . . . .. 43 APPENDICES A: Draft of Highway 13 Corridor Overlay District . . . . . . . . . . 71 B: Highway 13 Traffic and Improvement Statistics . . . . . . . . . . .. 80 C: Highway Jurisdictional Changes . . . . . . . . . . . . . . . . . . 86 LIST OF PLATES Number Page I REGIONAL SETTING. . . * * ' ' * * * * ' ' * ** * ' ' * ' ' * * ' 1 1 2 GENERALIZED HIGHWAY .13 CORRIDOR . . . . . . . . . . . . . . . . . 2 3 PARTICIPATING TOWNSHIPS . . . . . . . . . . . . . . . . . . . . . 4 4 GENERALIZED SOIL SUITABILITY . . . . . . . . . . . . . . . . . . . 13 5 EXISTING LAND USE . . . . . . . . . . . . . . . . . . . . . . . . 19 6 LAND OWNERSHIP . . . . . . . . . . . . . . . . . . . . . . . . . . 21 7 EXISTING ZONING . . . . . . . . . . . . . . . . . . . . . . . . . 23 8 SCENIC RESOURCES . . . . . . . . . . . . . . . . . . . . . . . . . 25 9 GENERALIZED PLAN . . . . . . . . . . . . . . . . . . . . . . . . . 39 10 PHYSICAL CONSTRAINTS TO DEVELOPMENT . . . . . . . . . . . . . . . 41 11 SCENIC RECOMMENDATION NO. 2 . . . . . . . . . . . . . . . . . . . 55 12 SCENIC RECOMMENDATION NO. 3 . . . . . . . . . . . . . . . . . . . 56 13 SCENIC RECOMMENDATION NO. 5 . . . . . . . . . . . . . . . . . . . 57 14 SCENIC RECOMMENDATION NO. 7 . . . . . . . . . . . . . . . . . . . 58 15 RECOMMENDED ZONING . . . . . . . . . . . . . . . . . . . . . . . . 61 16 TRAFFIC VOLUMES . .. . . . . . . . . . . . . . . . . . . . . . . . 73 17 HIGHWAY 13 RIGHT-OF-WAY . . . . . . . . . . . . . . . . . . . . . 74 18 ROAD DEFICIENCIES . . . . . . . . . . . . . . . . . . . . . . . . 76 19 HIGHWAY 13 IMPROVEMENT MAP . . . . . . . . . . . . . . . . . . . . 77 20 JURISDICTIONAL CONSIDERATIONS . . . . . . . . . . . . . . . . . . 81 LIST OF TABLES I HIGHWAY 13 CORRIDOR POPULATION PROJECTIONS . . . . . . . . . . . . 3 2 POPULATION OF HIGHWAY 13 TOWNSHIPS 1920-1978 . . . . . . . . . . . 6 3 PERCENTAGE OF HIGHWAY 13 ESTABLISHMENTS . . . . . . . . . . . . . 8 4 PERCENTAGE OF EMPLOYEES IN HIGHWAY 13 AREA ESTABLISHMENTS . . . . 9 5 SELECTED TOURISM-RECREATION LAND USE INDICATORS . . . . . . . . . 9 6 ESTIMATED OVERNIGHT VISITOR POPULATION, APOSTLE ISLANDS 10 7 EATING AND DRINKING ESTABLISHMENTS ON APOSTLE ISLANDS . . . . . . 11 8 DISTRIBUTION BY TOWNSHIP OF EXISTING LAND USE . . . . . . . . . . 16 9 DISTRIBUTION OF LAND USE BY TYPE FOR CORRIDOR AND ITS SUB-AREAS . 17 10 TOP FIVE CONCERNS PER PROJECT GROUP . . . . . . . . . . . . . . . 29 11 GROWTH MANAGEMENT GUIDELINES . . . . . . . . . . . . . . . . . . . 32 12 GUIDELINES RELATING TO SPECIFIC RESOURCES . . . . . . . . . . . . 33 13 ACREAGE INCREASE NEEDS BY THE YEAR 2000 IN HIGHWAY 13 CORRIDOR. . 35 14 ESTIMATED LAND USE ACREAGE IN HWY 13.PROJECT UNINCORPORATED AREA. 47 LIST OF FIGURES I TRENDS IN EMPLOYMENT BY INDUSTRY GROUP . . . . . . . . . . . . . . 7 "The peculiar problems and opportunities facing the peninsula area need t'o be addressed in a coordinated fashion beyond the level of indi- vidual local governmental units but in a more comprehensive focused and action-oriented manner.... Apostle Islands National Lakeshore Area Transportation Plan, Northwest Regional Planning Commission, 1978. "The area along Highway 13 between Washburn and Bayfield should feel considerable growth pres- sures, particularly for resort cottage and hotel/motel type developments. In order to avoid strip-type development, close relation- ships with the two counties and the towns must be maintained." Apostle Islands Economic Impact Stu , Northwest Regional Planning MM Commission, September 1978 I VVIT "The townships of Port Wing, Clover and Bell comprise the largest undeveloped segment of Wisconsin's Great Lakes coastline, 56 miles of biologically important wetlands, sand beaches, wilderness-like forests and numerous j river and creek estuaries broken only by the three modest townsites of Cornucopia, Herb- ster and Port Wing. Located on the western fringe of the Apostle islands National Lakeshore, the area is rich in natural re- sources with economic potential for many types of water-related resource development." The South Shore Charrette, A Com- munity Planning Process, Sigurd Washburn Times Olson Institute, June 1978 011 VIP Ic 'w 3 Wands Ama',M 10 :REI OR 41, 0" Xf C 4@1 '4 I A I let 'W'771777"" '.7 rill t t OW INTRODUCTION "Into Wisconsin's northern wilds, Thru the sweeping forest green, The allure of Northern Bayfield County is both O'er the hatchetway to Chequamegon Bay lakeshore and offshore, inland and island. On historic old Thirteen The miles of scenic Lake Superior shoreline, By the luring route of the picturesque the offshore Apostle Islands, the quaint towns, Where the spruce and the hemlock lean and the acres of inland orchards and woods To the lake a-beam and the woodland stream, together compose what can be termed a be- on historic old Thirteen" guiling recreation destination. I and ending the trip "Amid magic isles of the Saintly Twelve, With the establishment of the Apostle Islands Where the picture rocks are seen." National Lakeshore more and more tourists and As exerpted from one of second home recreationalists have discovered Joe Moran's (Glidden) poems the manifold appeal of the entire peninsula of in The Lake Superior Country Northern Bayfield County. Permanent residents, in History and in Story by many of whom represent a local manifestation of Gary M. Burnham (Browzer the urban-to-rural population turnaround, have Books, 1975), ...p. 422. also increased in the peninsula area. The proximity of local growth areas makes the penin- _zz sula attractive to such new comers. The main road serving the peninsula area is Wisconsin Highway 13. It runs near and parallel to Bayfield County's hundred odd miles of Lake Superior and Chequamegon Bay shoreline. State Highway 13 is the primary route for most work, school, shop- ping and commercial trips in the area. It also bears large volumes of tourist and recreational traffic. In meeting these various and hard uses, Highway 13 has be- come both generator and receiver of de- velopment pressures on lands immediately adjacent to the right-of-way. Motels, service stations, restaurants, and easily accessible permanent houses and businesses Transportation formed an interagency staff, all compete for the Highway 13 access privi- joined at times by other local professionals lege. as well (e.g., Sea Grant Advisory Service), to service the project and its participants History confirms that, in other areas where such as the work progressed. a mix of relatively intense development pres- sures exist, uncontrolled growth has sometimes The purpose of the project was for local gov- resulted in conflicting and poorly-planned land ernments to work with each other, with their uses, decreases in land values, traffic con- private-sector constituencies, and with the gestion and safety hazards as well as*scenic county to identify land use priorities and eyesores and a variety of unattractive land policies, and ultimately to create a land fixtures. When problems such as these are use plan to guide growth in the pressure compounded everyone begins to lose--the mo- prone 13 Corridor area. torist, the land owner, the environmentalist local officials and businessmen, the citizens The basic questions addressed by the project and the community as a whole. are quite simple: History also confirms that representatives of What is the area like at present and what such land use interests, both public and pri- problems exist? (Chapters 1 and 2) vate, can join forces to ask questions, develop approaches and initiate actions that What is the extent and scale of future can be instrumental in guiding future land growth likely to be? (Chapters 1 and 2) use and controlling growth in ways that may offset the negative tendencies of intense What policies and priorities should be used development pressures. to handle existing, and future, problems? (Chapter 2) To recreate this latter version of history local officialsand residents from Bayfield Where should growth take place, and where County and its coastal communities initiated not... ? (Chapter 2) the project reported on in this current document for the Apostle Islands Highway 13 How can this be accomplished locally? Corridor Area in 1978. The Wisconsin Coastal (Chapter 3 and Appendices) Management Program supported the project. The Bayfield County Zoning and Extension The citizen and intergovernmental activities on Offices, the Northwest Regional Planning which the project rests are, on the other hand, Commission, the University of Wisconsin- complicated: Extension and the Wisconsin Department of iv 0 individuals and officials had to learn to articulate their concerns, and to compro- mise their position to accommodate the sensitivities of others in the planning group,, 0 professionals had to learn to communicate with participants so that non-professionals would understand and accept technical in- formation as a prerequisite to creating their own future, M professionals had to learn to work with peers from different disciplines and agencies, and from different jurisdictional levels, and, at a level which continues to date, 0 local elected officials have to continue to seek ways in which, in partnership with their associates and constituencies, the recommendations of the Apostle Islands Area-Highway 13 growth management study can be reflected in the decision-making process. v Chapter One: The CORRIDOR CONTEXT LM rm ir "W, 7'w `lit T7 511HAN', a jo, T1 HIGHWAY 13 Regional Setting Wisconsin State Highway 13 sweeps up from Wis- consin's Dells to the Apostle Islands National Lakeshore, the city of Bayfield and the Red @_7 Cliff Reservation on the shores of Lake Su- perior before turning due west toward the city of Superior where it terminates after some h- three hundred and thirty miles. Highway 13 is oniy one of a number of major north-south F, routes--others being Highways 51, 27, 53, and AYtl E L D 63--that serve to bind the recreational at- DOUG As tractions of Northwest Wisconsin to southern . ....... tourists. (Plate 1) U.S. Highway 2 provides a similar east-west connection through Wis- C, A S L consin's northland from Michigan's Upper s B U R Peninsula to Minnesota's North Shore. But, $A W E B UR N E T T in any direction, only Bayfield County's A P R I C E unique stretch of peninsular Highway 13 provides an intimate touch with the resources of the Northwoods and Lake Superior. PU S K P 0 L K The Wisconsin Department of Transportation B A R R 0 N I.,dy- 1h has classified the portion of Highway 13 in Bayfield County, and further westward T A Y L 0 R through Douglas County, as an arterial M@dt- route which "...in connection with a princi- F pal arterial serves majo ,r cities, mid-size LEGEND communities and other traffic generating "fuels HWY-13CORRIDOR TWIN 0 communities with intra-regional and intra- CITIES area traffic movements." Highway 13 has CNF: CHEQUAMEGON NATIONAL FOREST attracted to within one-half mile either APOSTLE ISLANDS AND side of itself over seventy percent of the CHEQUAMEGON BAY Bayfield County peninsula's population, w ST CROIX SCENIC RIVERWAY virtually-all of its commercial establish- ments and many of its recreational facili- SKIAREA ties for camping, picnicking, boating and STATE PARK fishing. The linear extent of this de- velopment is nearly seventy miles. PLATE 1 Generalized Hwy-13 Corridor LEGEND 0& Send Ba ONE MILE WIDTH E suf, s Red . . . . . . . . . . . . . . . . .. . . . . . . . . . . . . . . . opis . . . . . . . . . . . . f Port Win iew La . . . . . . . . . .*.- Pointe SOUTHSHORE Opp . . . . . . . . . . . . . . . . CHEQUAMEGON BAY .0+ 0 shburn jop Ashland ul 0 1 2 3 4mi. a, SCALE BAYFIELD COUNTY PENINSULA PLATE 2 -2- TABLE I GOVERNMENTAL JURISDICTIONS Highway 13 Corridor In addition to Bayfield County and the Wisconsin Population Projections Department of Transportation, a number of other governments and public entities have an immediate interest in the future of the Highway 13 Corridor 1980 1990 2000 Area. These include the townships of Barksdale, Bayview, Bayfield, Russell, Bell, Clover, Port Barksdale 658 706 757 Wing, and Orienta; the cities'of Washburn and Bayfield; and the Red Cliff Indian Reservation. Bayview 398 472 559 (Plate 3) Two federal-level agencies--the National Park Service and the U.S. Forest Service--also Bayfield 536 570 606 administer substantial areas of the peninsula, the Apostle Islands National Lakeshore and the Chequa- Russell 490 5.28 569 megon National Forest, which are proximate to the Highway 13 Corridor Area. Throughout the early Bell 265 291 320 Lections of this report these jurisdictional entities, with special emphasis on the unincorporated town- Clover 350 397 438 ships, will provide structure for the display and analysis of background informati6n. In later report Port Wing 398 379 344 sections, the roles participants from these juris- dictions played in attempting to shape their own Orienta 114 114 114 land use destiny should be equally evident. POPULATION City of Washburn 2,070 2,293 2,468 For some fifty years prior to 1970 Bayfield County City of Bayfield 859 852 813 and most of its Corridor civil divisions typified the population trends found throughout Northwest TOTAL CORRIDOR 6,138 6,602 6,988 Wisconsin. Populations declined rapidly when eco- nomic activities such as logging, mining, fishing and Bayfield County 13,134 14,368 15,734 farming began playing out. The decline reflected the general movements of people from rural to urban areas. But since 1970 Lhe county and its Corridor civil divisions, have begun showing signs of a Source: Northwest Regional Planning Com- turnaround, some quite dramatic. (Table 1). mission Projections, April 1979. New growth is not attributable to births. Rather it is due to population in-migration-- a phenomenon that had been virtually uncharac- teristic for this area over recent decades. -3- ON A L "SV Participating Townships . . . . . . . .. . . . . . ........... 1... 0 %A R@d Cliff K Indian Rasv Cornucopia L.WIELL Red. H rbster ... ....... Bayfield Ca PortWing mymn& - - - Pointe C STH 13 A PORT WING BELL BAYV W 66 ORIENTA CLOVER Washburn,, A 0. 0 0110,616. @el STH 13 PARTICIPATING TWP LINE BARKSDALE us l"d 00 2 BAYFIELD COUNTY PE' 0 1 2 3 4ml 1 ULA PLATE 3 These relatively new, population in-migration trends may continue for several future decades. Tf they do, the Highway 13 Corridor Area will like- ly attract up to eighty percent of the more than eight-hundred people-increase projected for its governmental jurisdictions. (Table 2). These figures should be viewed with caution, and only as general growth indicators, since they are based on short-term trends occurring during a period of considerable economic, energy and life-style flux. For technical reasons it was sometimes necessary to attribute an uncomfortable degree of credibility to some of these projec- tions as they were transformed into the land use projections which appear later in this report. Nevertheless, the reader is forewarned that the future remains uncertain even to planners and local participants in this project. ECONOMY Bayfield County's economy is part of a larger regional economy which, in recent years, has evolved from a heavy dependence on natural resource utilization (wood products, minerals, fishing, and farming) to a more balanced mix of service, particularly recreation, and resource base-industry activities. Ma shb u rn From 1962-1973, the county experienced growth in PM LATION -1957 industrial employees (double), industrial pay- rolls (more than double) and in the number of new units (fifteen). The same period shows growth in service lindustry indicators as well. Agriculture in Bayfield County has paralleled the statewide trend toward declining amounts of active agricultural land and decreases in the number of farms, but an increase in the size -5- TABLE 2 POPULATION OF HIGHWAY 1@ TOWNSHIPS 1920-1978 1960- 1970 1970- 1920 1940 1960 1970 1978 %Change 1978 Bayfield County 17,201 15,827 11,910 11,683 13,080 -1.9% +11.9% Barksdale 458 566 585 574 649 -1.9 +13.1 Bayview 464 431 296 297 384 + .3 +30.6 Bayfield 628 675 474 503 529 +6.1 + 5.1 Russell 175 575 419 475 483 +13.4 + 1.7 Bell 228 336 238 205 260 -13-9 +26.8 Clover 292 419 274 277 393 + 1.1 +41.9 rort Wing 687 584 487 385 434 -20.9 +12.7 Orienta 214 203 116 108 114 - 6.9 + 5.6 City of Washburn 3,707 2,363 1,896 1,957 2,049 -11.3 + 4.7 City of Bayfield 1,441 1,212 969 874 884 - 9.8 + 1.1 Source - Wisconsin Department of Administration Estimates 1978 -6- and efficiency of remaining farms. From 1976 to FIGURE I 1978 the county's gross farm income went irom TRENDS IN EMPLO'YMENT BY INDUSTRY GROUP six-plus million to almost eight and one-half million dollars, up more than twenty-seven per- cent. Wholesale and retail trade indicators traveled in different directions between 1111 and 1972; e.g., the former was down more than thirty percent in total sales and grew by nine- BAYFIELD COUNTY teen establishments. Tnflation and uncertain energy trends make it difficult to tell what the future holds for Bayfield's rural economy as a whole. The county is remote. Sketchy indicators suggest that the contract construction and manufactu- 3100o_ ring sectors of the economy dipped quite sig- nificantly between 1973 and 1976 in both em- ployee numbers and payrolls (see Figure 1 for generalized employment trends). And while the same indicators show overall increases TOTAL in service sectors, a significant drop was experienced in finance, insurance and real 2,000 estate activities. It is even more difficult to characterize the co OTHER economic situation for sub-areas of the county such as the Apostle Islands area. In general terms, all of the county's commercial fishing 11000 SERVICES (and much of its sport fishing) is located along the Lake Superior coastal area of the peninsula. This Highway 13 area also accounts 500 RETAILTRADE for the county's specialty agriculture such as apples and other fruits. Other agricultural MANUFACTURING activities, however, such as crops and dairy- ing, are concentrated outside the coastal 1970 '72 74 '76 '78 area, either in the peninsula's interior or down-country. Forestry activities, logging SOURCE: Annual Overall Economic Development and wood products processing, are distributed Report for NW Wisconsin, 1979, p. 14. ZOTA L 0 OT HER T I @RETA LTRADI throughout the county, including the peninsula -7- area. Similarly, recreational employment is a TABLE 3 strong factor both in the peninsula and down- PERCENTAGE OF HICHWAY 13 ESTABLISHMENTS county sub-economies. While other service activities are also well distributed county-wide, Jurisdiction Sub-Area Location the presence of the county seat, and of the Type of economies of Washburn and Bayfield, tend to Estab- Incorp. Unincorp. South Cheq bias these types of employment toward the lishment Area Area Shorr:@ Bay Highway 13 Corridor Area. Construction Table 3 shows that within the Corridor Area it- (21) 67% 33% 14% 96% self economic activities tend to be concentrated much more in incorporated than in unincorpor3ted Manufacturing areas, and in the Chequamegon Bay rather than (12) 67 33 17 83 in the South Shore area." The same observations hold in interpreting the distribution of em- Transporta- ployees shown in Table 4. tion/Utilities Recreation (14) 93 7 100 Trade (50) 80 20 16 84 Bayfield County has long been known for its recreational attractions. With the estab- Finance, Ins. lishment of the Apostle Islands National Lake@ Real Est.(18) 78 22 22 78 shore, however, a renewed focus of activity was turned toward northern Ashland and Bay- Service (25) 84 16 8 92 field Counties, and the Highway 13 peninsula area. Table 5 suggests that in addition to Government (12) 33 67 42 58 Lake Superior and its Apostle Islands, the peninsula area holds its fair share of other *Total number of establishments is represented recreational facilities and land uses as well. in parentheses. There are also three marinas in the corridor area (at Cornucopia, Bayfield and Port Superior). **Figures in these categories have been adjusted locally by Highway 13 project staff to offset underreporting in original data source. Russell Township roughly serves to divide SOURCE: Wisconsin Department of Industry, Labor the Corridor Area into its Chequamegon Bay and and Human Relations, 1978 Computer Print- South Shore sub-areas. Portions of Russell it- out of Employers and Employees covered self may relate either direction depending on under the Wisconsin Unemployment the subject under consideration. Compensation Law. TABLE 4 TABLE 5 PERCENTAGE OF EMPLOYEES IN SELECTED TOURISM-RECREATION HIGHWAY 13 AREA ESTABLISHMENTS LAND USE INDICATORS Jurisdiction Sub-Area Location Percenta@e In Type of Project Rest Ot Estab- Incorp. Unincorp. South Cheq. Area Bayfield Co. lishment Area Area Sbore Bay Campground sites (1039)* 38% 62% picnic Sites (201) 32 68 Construction *-,I: Public Swimming (91) 1 74% 26% 5% 95% Beach Front Footage (5350') 58 42 Manufacturing (142) 54% 46% 16% 84% Downhill Ski open Slope Acreage (150 ac.) 33 67 Transporta@ion/ Cross-County Ski Trail Utilities (24) 96% 4% __% 100% Kilometers (106 km) 45 55 Trade (194) 77% 23% 10% 90% Finance, Ins. *Totals are represented in brackets. Real Est. (85) 69% 31 31,',. 69% SOURCE: Bayfield County Outdoor Recreation Service (402) 60% 40% 16% 84% Plan, NWRPC, 1975. Government (133) 100% __% __% 100% Total number of establishments is represented in parentheses. Figures in these categories have been adjusted locally by Highway 13 project staff to offset underreporting in original data source. SOURCE: Wisconsin Department of Industry, Labor and Human Relations, 1978 Computer Printout of Employers and Employees covered under the Wisconsin Unemployment Compensation Law. -9- The City of Washburn is considering a marina de- TABLE 6 velopment as well, and marina improvements are being planned at Port Wing, Herbster, Cornucopia, ESTIMATED OVERNIGHT VISITOR POPULATION and Red Cliff. APOSTLE ISLANDS (CHEQUAMEGON BAY) AREA SATURDAY, AUGUST 21, 1976 This type of recreational climate draws several hundred thousand visitors annually to the area, No. People and visitation is expected to grow. However, of Percent Per Total fuel shortages and other inflation-related con- Facility Units Occupied Unit People siderations could make travel to the area more difficult, and alter these trends significantly. Bayfield Hotels/Motels 78 96.1 2.6 202 Table 6 shows recent estimates for the summer Bayfield Tourist Homes 41 90.0 2.6 107 season overnight-visitor population to the Che- Marinas in Area 671 quamegon Bay area of the peninsula alone on a National Lakeshore 139 typical weekend night. Some sixty-five percent of the Highway 13 area's motel/resort establish- Red Cliff Campgrounds 30 90.0 3.1 86 ments are located in the Chequamegon Bay area, Pt. Superior Condominiums 12 100.0 4.1 50 which also includes eighty-five percent of the Madeline Island Chateau 14 93.8 2.6 35 tourist homes and rooms. Redwood Motel Washburn 18 100.0 2.1 37 Table 7 shows the area-wide distribution of land Other Washburn Motels (3) 33 100.0 2.1 69 uses associated with eating and drinking. Washburn Campgrounds 123 26.0 3.1 99 establishments catering to tourists and resi- Other Pub. Campgrounds(4) 80 75.0 3.1 186 dents,alike.' Again, a concentration in the Private Campgrounds (4) 136 75.0 3.1 316 Chequamegon Bay area is notable. 1997 NOTE: Public campgrounds and units include LaPointe (40), Big Bay State Park (18), Bayfield (11), Sand- bay Town (11). Private campgrounds and units in- clude Apostle View (40), Norway (12), Trinkos (12), QJI Camping Resort (72). SOURCE: Questionnaire Survey, Personal Interview and estimates prepared by Lorimer Assoc., Inc./Beck and Associates, consultants for NWRPC Impact Analysis of Alternatives for Economic Management of the Area 7- Perimeter to the Apostle Islands National A -V, Lakesore, WI, September 1978, page 74. TA TABLE 7 EATING AND DRINKING ESTABLISHMENTS IN APOSTLE ISLANDS TWO-COUNTY (ASHLAND/BAYFIELD) AREA Number of % of Total Location Establishments Establishments Ashland County, excluding Madeline ............ Island 131 51% '7' UK Madeline Island 6 2% Bayfield County, VICTOR V. Excluding Highway 13 r DINI G 4WD DCIN BY RE ION,, Area 80 31% Highway 13 Area 39 15% (% Hwy 13 Area Chequamegon Bay Sub I'M Area (31) (80%) South Shore Sub-Area (8) (20%) SOURCE: Wisconsin Department of Health and Social Services, Special Tabulation, September 1976. NATURAL SETTING Highway 13, the peninsula's governmental juris- Corridor Area. Temperatures along and near the dictions, its population and economic activities shoreline are modified by the lake, especially have all been superimposed on a natural setting during the spring and summer seasons when the that is at various places both unforgiving and average is lower in comparison to the southern receptive, unique yet typical. A general sense and interior areas. Winter extremes are more of some of these traits and relationships is es- severe inland as well. sential to any future growth management activity. Mean annual snowfall is about forty-nine inches Climate along Chequamegon Bay, but over sixty-five inches in the interior region of the county. Lake Superior exercises a constant and critical Precipitation means vary from twenty-eight to influence over the climate of the immediate thirty-two inches annually depending on geo- graphic location. Prevailing winds are westerly from early fall through early spring, and easterly the remainder -p of the year along the Chequamegon Bay shoreline. In the interior, winds are generally north n Ji westerly from fall until spring, and southerly the rest of the year. Soils and Topography Within the Highway 13 Corridor Area the predominant landscape is a geologically historic red clay lake with flat to gently rolling topo- graphy. (Plate 4) Some areas, notably near the city of Bayfield, have relatively steep slopes. The limitations and deficiencies of red clay oils for development are numerous and acute. These soils exhibit very low sheer strength properties, high shrink-swell potential, and LION expremely poor drainage characteristics. The first two qualities have important cost and engineering implications for highway construe- tion and maintenance activities. In fact, the near-prohibitive soils and topographic compli- which would accompany any future re- cations M location of Highway 13 provide a strong impetus -12- Generalized Soil Suitability LEGEND Sand Ba GENERALLY HAZARDOUS EXTREMELY VARIABLE WITH AREAS OF SEVERE LIMITATIONS 13 VARIABLE WITH A FEW HAZARDOUS AREAS ornucopia Red Herbste Cliff Bayfield ... ... .. ... ort Win . .. .. ...... . ............. @12 -L' SCALE SAYFIELD COUNTY PENINSULA PLATE 4 to efforts such as this project which are orien- ted, instead, toward offering a measure of pro- tection to the artery's present location. The last red clay soil characteristic--its inability to percolate liquids--imposes widespread and stringent limits on the use of septic tanks in areas inaccessible to centralized community sewerage systems. -Y. Other of man's activities--forest cropping, agricultural clearing and livestock grazing, temporary road construction and other events requiring vegetative removal or land shaping-- are generally ill-advised in hilly red clay terrain. These activities accelerate and com- pound natural headwater erosion by streams IL in the Lake Superior area. Although "flashy" t:, and often occurring within short periods, sediment discharge of area streams is facili- tated by steep gradients and relatively high stream velocities. Wave action and high lake levels along the immediate Lake Superior shoreline also combine with some of-man's activities to contribute volumes of sediment. When deposited in Lake Superior the fine silt and clay particles remain suspended for a long time and spread out over several miles or more. Wetlands and Flood Hazard Areas Still other areas along the Corridor prompt special attention because of their capacity to support valuable vegetative, fish and wildlife populations and/or because of their M tendency toward periodic flooding. The flood hazard boundary maps, published for Bayfield County in 1977 by the U.S. Depart- ment of Housing and Urban Development as a r4 .r preliminary guide for lending institutions -14- and for the county's Zoning Office, serve as a basic reference source for these resources. Gen- eral areas affected, in addition to parts of the 131A Lake Superior shoreline, include portions of the following stream valleys: Iron River and Fish V Creek in Orienta Township; Flag River in Port Wing Township; the Cranberry and Bark Rivers, and Bark Point Slough, in Clover Township; Lost Creeks and Siskiwit River in Bell Township; the Sand River and Pikes Bay in Bayfield Township; the Onion and Siqux Rivers in Bayview Township; and Bono and Whittlesey Creeks in Barksdale Township. Scenic Resources The Highway 13 Corridor Area in Bayfield County is basically a rural lake visual experience interweaving six landscape types: 1. forest 2. community 3. agriculture A 4. lake awareness 5. wetland and slough 6. ridge and hills These six landscape types combine sequentially throughout the Corridor to create variety and interest for the motorist, tourist and resident alike. Sand beaches, vast forest lands, scenic hills and bridges, picturesque lake front communities and Lake Superior itself all contribute to this dynamic midwest visual resource. (See scenic resource map Plate 8 at the end of this section.) -15- TABLE 8 EXISTING LAND USE DISTRIBUTION BY TOWNSHIP OF EXISTING LAND USE Tables 8 and 9 show that a considerable amount of undeveloped land is found in the study area. More than 26,000 acres,or about 82 percent of Undeveloped Lands Developed Lands the 32,000 acre corridor, are classified as Wooded wooded, commercial forest and natural areas. and Commercial, Agricultural and pasture lands account for an Natural Agriculture Resi- Industrial additional 4,000 acres. See Plate 5. Acres Areas and Pasture dential & Service LAND OWNERSHIP Barksdale (1,986) 62% 18% 7% 13% Fifty-five percent of Bayfield County is in pub- Bayview lic ownership including 260,000 acres of Che- (3.459) 78 17 4 1 quamegon National Forest and about 200,000 acres Bayfield of county and municipal land. (6.530) 86 9 3 2 Russell In the Corridor, however, only a minimal amount (5,064) 86 11 2 1 of land is publicly owned. As shown on Plate 6 Bell most of the public ownership is county forest (4,201) 80 16 3 1 land in Russell Township. The Wisconsin De- Clover partment of Natural Resources owns some stream- (3,684) 90 6 2 2 ,:bank and lakeshor&property, andthe remainder Port Wing of public land is in scattered township parcels. (3.784) 79 16 4 1 The majority of land in the Corridor is Orienta 'privately owned. (3,565) 84 14 1 1 ZONING Corridor In 1934, the first forestry and agricultural (32,273) 82% 13% 3% 2% zones were delineated in Bayfield County. SOURCE: Highway 13 Project Calculations. Through the years additions and changes were made such as floodplain zoning (1960), sanitary and subdivision control ordinances (1967) and comprehensive zoning (1971 and 1976). Of the eight townships within the Corridor area, seven have adopted county zoning. -16- TABLE 9 DISTRIBUTION OF LAND USE BY TYPE Bayview Township dropped out of county zoning FOR CORRIDOR AND ITS SUB-AREAS 1976. However,_subdivision, sanitary and shore- line regulations common to the rest of the county do remain in force within the township. The cities of Washburn and Bayfield each have Location their own zoning ordinances and both have re- cently updated comprehensive plans. Plate 7 Entire Chequamegon South shows the existing zoning. Land Use Type Corridor Bay Shore Wooded and Natural Areas 78.22% 71.26% 80.48% SISKIWIT Bp Commercial Forest 4.22% 1.99% 4;95% Agricultural/Pasture 12.62% 15.94% 11.54% 3 . . . ........ . .. ... . . Residential 2.85% 5.30% 2.06% CORKNUCarl" Commercial .40% .82% .26% M rUSLIC HHRMOR Industrial .70% 2.73% .04% THE- CURNU, 'r. CUM Recreational .51% .95% .36% Governmental/ 11R H''11 Institutional .48% 1.01% .31% 100.00% 100.00% 100.00% (32,273 (7,912 (24,361 acres) acres) acres) m7l' -17- 'low Existong c p . VAJ Land Use HIGH q 9 'UH.H. mucop ;UICKJL -ul ,FCT AaftxlleM@Mnt 7 Herbst Fh 7, 71@ =x"M NMI-I.F_ C OVER i @g, A--f -7' k., `6 14IN LEGEND L p w T @NG f jq T RESIDENTIAL pj@ "T'a A i) I W11 X, , I COMMERCIAL OR I EtN4 k-@. INDUSTRIAL 0 00000 0 ow 000 00 INSTITUTIONAL/GOVERNMENTAIJ AGRICULTURE/OPEN LAND NATURAL AREAS Sand Bay:@:-- ......... IsLAND El F H11920 `_,_2M N- HN"k, %j 1, T IN A A SAM I, I g K R "mmil @d' A 2 Red 13 N 4,% @E A j,_,jf Cliff 4 BA@FIELD` U IHAAA 'Bayfield % gmm A'@ % T L & -00 H !V1 la Pointe A MADFUNr 5L4ND I Pa t 7@ B AY v I U"M Ap 4 r I fmi 7 Am S i iBURN U1 cy"m m WA "7 'Washburn 0 i 21 'el 7.1 97 21 Ai and .... . .. ... '17 @14 PLATE 5 SCALE MONTH 1 2 3 Miles Land sq- P-, Ownership We HIGH 8-1 8@f M pi, CORRI @@ornuc@pi ------- . .... 'A Wi. it 'T Her ter,@@, . ....... .. . .... ... .. tv "I BE . . ......... P"@ C@OVER 0- Pul t W n ' gr' LEGEND -PORT *1 Gr@ PUBLIC OWNERSHIP QUASI PUBLIC ... ..... ... OF I Ejlj@k\@, FEDERALLY ADMINISTRATEDI PRIVATE P, rV R7 41 V., /0 Sand I 4,4 4 Ag@ A3 F. ;RUSSELL A bw % R IWA 15@ F Red 44 cl 4; . .. . ......- ift B AY F I E L D ,7 t A, % @'i3ayfield I, -ef T'l la Pointe@ '51 AND frog BAYVI@W, WASHBURN x @Vashburn IL < AI E, v lb@Aik K"S DA L E ... ... . ... 7 7 72" 4 Ash,land fz 10 0 PLATE 6, SCALE rul 1 2 3 Miles Existing 5 p A o Zoning F HIGH 13 Z_ 8-4 8.y P9 R-R CORRID lCornuc nt 4 r F-1 Herb t I + F RA S. I-, X1 R -8 E L L F,jl 4 CLOVE t Port WT9 7 T-, 7) R-2 LEGEND .7T R F-l', R-1 RESIDENTIAL 'IN T W, d,), R 2 F-1 4 4 MC-1 COMMERCIAL j ........... . ..... INDUSTRIAL OR I E N TA" -RECREATIONA P L RR RESIDENTIAL FORESTRY F 7_71 F-2 A .1 AGRICULTURAL W-1 CONSERVANCY 4,4 N Sand Bai77@1,1 34 'T X, -A A lie F F 1, RU ELL F F-1) A-11 A Ft-R AI F-1 s J, F 1 Z, M 13 e A 1 / cliff A 1 'J" B AYFIELD Al Fr,I Sayfield A-I' _X IL J R, @4' -2( @La Pointe F MADELINE ISLAND Fl 6M 'R' > F1 r, c B AY V I EW, A I po, J, t jl WAS i, ' ' _J HBURN@@ Al ,;z 'Washburn F14 Al A 10 Tz I@AR@!SDALE W A AS 'N Ind "A L 4 I _D_ t PLATE 7 SCALE HOANCTU 0 2 Mles Lw 0 p C', 7 T- f"NOTT Oft 4@ v Scenic V FooNV I (Cur i6v, Resources 6 !i I AA 7 A, B E ,B E 7, Port @C LOVE@ Wing- F7 14 A, CA LEGEND 7 ItRORT NG n:, tu@LAKR oiWA-2MESS ... .... ... MWRAMA, _AD AL -erl tw -tu F 4-, 4, o I? Sand B y 0 ISLAND 7-- k 'fl 0 -V f 17 7, wiiii 4-A IBAVFIELD, lp, JE .... ...... B f i 16 P, 49 L PS MADELINE 4po' ISLANI) % tic L `5 BAYVIE A Am WA HBURN WAS tlashburn LE- A 91 16;@ - 'o --------------- ---- I- I@A R WS D-A-L-E-j 7 _,6 Ash and 16 SCALE PLATE 8 2 Mies U @, IA .4 1 1 11 r Two: ES ' 'The''P'L'" . ..... A"'N"N'W"G" P' OC 0""04 S 14 AL 7j, 157 . ...... ...... . . . . ..... . . .... .. . ... ... Jill I r,e THE PLANNING PROC ESS Setting the Stage In autumn 1978, five public meetings were held throughout the study area to introduce the project and to summon local participation. Later local committees were formed in both the A South Shore and Chequamegon Bay sub areas, each committee containing representatives from each of the Corridor townships. The committee planning process involved five meetings from January to May, 1979 with each meeting designed to accomplish one step in developing an overall land use plan. The steps were: determine local land use problems; E identify and select priorities among various objectives; evaluate existing policies and guidelines; 0 map citizen recommendations; and X E select implementation devices. A Review of the Planning Steps: Meeting #1--Problem Identification '4@ The first public meeting examined local land use problems and growth indicators such as population and transportation trends within . . . . . . the committee area. To identify broad con- cerns, committee members were asked the question "In your opinion what are the major land use issues that need attention in the -27- Highway 13 Corridor over the next few years?" Each person was given the opportunity to ex- press his or her views until all ideas had been recorded and discussed. More than one hundred separate concerns were identified. Each individual then voted for the five most important responses. Table 10 lists those "top-five" choices. As can be seen from closer examination these responses fall into the following categories: 1. Concern for local control In the last decade, local residents and local government have at times played only a minor role in the decision-making process of state and federal programs. 2. Improvement of the Highwa y 13 surface and related repairs Most groups, particularly along the South Shore, mentioned the need for reconstruction or other improvements to Highway 13. Although the scope of this project deals with land use a long the highway rather than highway maintenance issues, these concerns were recognized by the Wisconsin De- partment of Transportation. Two special meetings were held on the Rik subject in Washburn and Herbster. (For additional information Appendix B contains data regarding improve- Fo" ments and maintenance along Highway 13.) -28- TABLE 10 TOP FIVE CONCERNS PER PROJECT GROUP CHEQUAMEGON BAY Group 1 Ranking Total Points 1 (21) Keep regulatory control at the local level--town boards, county, villages. 2 (13) Plan for inevitable development so as to maintain aesthetic values. 3 (10) Taxes on shoreland property are unrealistic given the regulatory constraints imposed on development. 4 (10) Keep new government restrictions to a minimum in this study. 5 9) Limit commercial development to already established areas-- no neon eye pollution. Group 2 1 (19) Maximize local input in public land management and acquisitions. 2 (19) Reconstruct Highway 13. 3 (18) Maximum local control. 4 (14) Encourage industrial development (esp. Barksdale DuPont site). 5 (10) Concentrate commercial and industrial development in a single area. -29- TABLE 10 cont. TOP FTVE CONCERNS PER PROJECT GROUP SOUTH SHORE Group I Total Points 1 (27) Road and shoulder improvement: a) visual obstructions; b) dangerous and blind driveways. 2 9) Maintain clean environmental standards. 3 7) More South Shore industry. 4 6) Upgrade and preserve the Cranberry River for recreational pursuits and to maintain its beauty. 5 5) Sanitary problems in clay areas. Group 2 1 (30) Highway should be upgraded to meet safety standards (not relocation): a) im- prove shoulders; b) brushing to discourage deer and other wildlife; c) etc. 2 (18) Condemnation powers should be exercised carefully and sensitively. 3 (13) Control over development should reside at local level. 4 (12) Need for public sewerage and water supply in communities for development purposes.: 5 8) Group or cluster development to preserve amenities and beauty. Group 3 1 (17) Control residential-population density. 2 (15) Preserve natural areas and wetlands. 3 (13) Uncontrolled commercial development. 4 (12) Control random commercial zoning. 5 9) Upgrade Highway 13. -30- 3. General development and growth concerns These were the issues of primary interest to the Highway 13 Corridor Project. They are problems that can be solved by local action utilizing local powers. Meetings Two and Three: Identifying Goals, Selecting Priorities, Implementing Guidelines The second and third rounds of committee meetings A in February and March were to identify solutions to the problems discussed during the first round of meetings. Working in pairs, citizens examined possible goals from six separate subject catego- ries--transportation, residential-recreation, com- al-historical, and mercial, industrial, environment open space/forestry. The objective of having peo- ple work in pairs was diplomacy. It was part of an effort to recognize the need for some compromise of individual ideas to meet their public sensitivities The third round of meetings differed from the sec- ond round by introducing "group consensus" as opposed to "partner agreement.' Final implementing policies and guidelines as determined by the working groups are presented on the following pages. They are listed under A two main headings: Growth Management Policies A,1 and Guidelines; and Policies and Guidelines Relating to Specific Resources Tables 11 and 12. The statements here are those of citizen par- ticipants and in some cases have been modified Ak due to length or for reasons of clarity. How- ever, care was taken to preserve the essence of each statement. -31- TABLE 11 GROWTH MANAGEMENT GUIDELINES Subject: Developmental Patterns Developmental areas should be clustered. 0 Concern about the number and attractiveness of billboards along the highway. Commercial and industrial development should N Concern over man-made eyesores - buildings, be concentrated in incorporated areas. signs, etc. 0 Minimize signs, prevent junk yards and Need for public sewer and water supplies in. trailers along the highway - increased communities for developmental purposes. setbacks. � Cluster development via common sewage Landscaping and Preservation of Natural Beauty. disposal. � Provide sewage treatment in existing 0 Avoid clearcutting along Highway 13 communities. leave screening. 0 Upgrade and preserve the Cranberry River for Commercial Development in rural areas along recreational pursuits and to maintain its highway should not be expanded. beauty. Subject: Highway Access Considerations Encourage new development that is compatible with New Highway Access. historic architecture and aesthetics of the area. N Attract visitors by preserving historical � Minimize driveway access through use of sites and buildings. parallel access and service roads. � Maintain safe access to residences along Group or Cluster Development to preserve Highway 13. amenities and beauty. � Each owner should be permitted safe individual access. Subject: Land Use Ownership Commercial sites should be accessible without creating a traffic hazard. Maximize local input in public land management and acquisitions. Subject: Scenic Preservation Open up some public land for development. Keep corridor mainly a scenic area. Maintain private land ownership. -32- TABLE 12 GUIDELINES RELATING TO SPECIFIC RESOURCES Natural Areas and Open Space Residences � Preserve natural areas and wetlands. Encourage residential growth based on jobs � Structures should be set back safe distances. and the ability of the town to handle from the lakeshore and wetlands areas. increases in local services. N Discourage lakeside development. 0 Determine future uses or protection of prime Control residential population density. agricultural lands in highway area. Maintain rural integrity of area. Support policies discouraging small lot Recreation - Commerce residential development along highway. Residential-recreational is vital future of the area. Trailers should be zoned either in trailer parks or limited zones. Travel trailers or other house trailers should not be located along highway if only used for occasional purposes. Effect controlled growth program - no fast food and amusement parks. Encourage more locally controlled sites for tourists. Industry E Encourage industry especially at Barksdale DuPont site. � Encourage industry especially in (protected) harbors and rail right-of-way areas. � Encourage industry along South Shore. � Encourage development of wood products industry. -33- -Fourth Round - Mapping The purpose of the fourth round of public meetings was to determine how land uses should be provided for in the future. In order to make sound planning decisions, "'e, reasonable projections of future land use needs were necessary. Also used was information about 4V11; . .. ... present land use. AMEMERr For this study, staff personnel provided citizen 61 committees with initial land use estimates and AVh@@ zkii k 1 12, maps showing areas of physical constraint and development'. (Shown in Table 13.) Committee mem- c@ @.19,1 4dfv,& 0- bers examined the figures for their own town- ships, discussed and in some cases ad usted them. R MM Estimates show 460 acres of land will be needed for development purposes by the year 2,000. This acr eage plus the 123* acres of recreation related land needs suggested in the Apostle Is- land Economic Impact Study bring the total es- timated corridor land use needs to 563 acres. Future Land Use With the calculated land use needs and previous L-, N1, background information, citizens mapped the preferred growth areas for corridor townships. 4A. Acreage added in for the tourist industry is broken down as follows: motel/hotel units 5 acres; resort cottages = 55 acres; seasonal homes = 33 acres; and campsites = 30 azres. All but 24 of the seasonal homes are recoimqended for incorporation into cluster development -34- TABLE 13 ESTIMATED ACREAGE INCREASE NEEDS BY THE YEAR 2000 IN HIGHWAY 13 CORRIDOR BY INDIVIDUAL UNINCORPORATED AREA New Residential Commercial Staff Estimated Town Households Acreage Acreage Total Acreage Barksdale 19 83 7 90 Bayview 26 114 10 124 Bayfield 15 66 6 72 Russell 12 53 5 58 Bell 7 31 3 34 Clover 7 31 3 34 Orienta 5 22 2 24 Port Wing 5 22 2 24 TOTAL 96 422 38 460 NOTE: Land use estimates are based on population projections for civil divisions by 1\'WRPC These estimates assume the percent of corridor population will remain the same in relation to the total township population. 1. New households were figured at 2.75 persons per household. A base-level need of five households minimum by 2000 assumed for townships (Port Wing, Orienta) with stable or declining population projections. This automatically also introduces minimum residential and commercial acreage needs . 2, Future residential acreages are assumed to utilize the same average amount of land as exists today--4.38 acres per household. Commercial acreage figured at .39 acres per household. -35- once land use needs have been calculated, citi- zens then determine the best locations in their townships for future residential expansion. Factors such as general compatibility with existing development, traffic safety, ease of service, and physical features are some of the considerations to be made. Plate 10 indicates areas where development constraints would be L extreme. Physical features shown here are steep slope, wetland, and erosion areas N all of which would have limited development potential for building purposes. The data has been transferred to a General Plan Map (Plate 9) which displays three types of development areas--growth areas where devel- ment should be discouraged, limited growth areas, where minimal development could take place with regard for the physical or human limitations I- 7771m, 11-1 found in those areas, and non growth areas where development should be avoided. This summarizes the accomplishments of the first four rounds of meetings. The fifth round dealt with zoning recommendations and as such is a part of the next chapteron the implementation of the suggested growth management guidelines. -36- LEGEND FOR GENERAL PLAN MAP #1 Priority Development Area - High and Medium Density Development should be encouraged in these locations. Whenever possible, cluster development and/or common sewer facilities should be incorporated. #2 Minimum Development Areas - Only low or medium density developments should be con- sidered for these areas, and allowed only if compatible with the surrounding physical features (i.e., terrain, slope, soil suitability, drainage, etc). #3 Conservancy Area - Development should be discouraged in these zones due to extreme physical constraints or poor site location along Highway 13. -37- ---------- - 0 p Generalized Plan E[IGHW, L6i, 13 opW Cornuc JECT Count L Herb ter .... ... .... . LC 5F Port OVER,@' _J A 4- _4 LEGEND -A, "r. ?P60T VONG PRIORITY DEVELOPMENT AREAS F If 6B fv4 A' MINIMUM DEVELOPMENT AREASI CONSERVANCY AREAS ... .. . . . . ..... ..... . f 0 1? V /0 i Sand Ba AV ;"Tz'@ OAi( ISIA.D 7 X ff A? 14 16 SELL 4t, 'A" OA _v" Y ed 3, IV, ' j, 'I", , - 1. " /@"' '@ /a , I , . I ' @:' , Cliff lzI ........... m, --T ,\t@v' BA@FIELD" w 12 Bayfiel d La Point 7 MADELINE ISLAND A LA\ BAYVIE* jiW J WASHBURN! .... . .....- .,Vashburn 7". IL . . . ..... .. L .. .... . .... z op 20 v J'- . .... . 7 As nd .... .--- --- 14, @@ .. . . ... .... PLATE 9 SCALE H(Ono CTM 2 3 Miles " Vu 0 R hysical Constraints WU to Development Gornuco A 31 Herbster A Off- J, 6 zF ou A I UN A Ir LT C LOVE PO 4 LEGEND @O@T *iNG ACTIVE EROSION FLOOD HAZARD GP I E@Tk@'@ ? STEEP SLOPE [Over 12%] J 74, 4, 4"o 10 i o y /Sand Ba 77 7,1 y MR I., -F- jIV0b -'Z "11MA, 14 71-411,T RUSSELL vm- M c: Itll A M \6 if 2k. A" -K@ Red 1@4 J ;w Cliff wow BAVFIELD,:,,@@, YN A -Baytield AV- T la Pointe MADELINE iSLAND wlmlwl u -@w BAYVIE N 7 7 .7 om', -Le, WASHBURN A:-7 -4, ,'I -4- J, Washburn 01 t'V, "',4, @411 A n 16- 7f . . ..... .... ... . ... ..... PLATE 10 SCALE 0 2 3 miles pr IL Ar kol IMPLEIVIE !o .......... *W* milli oft-ft, 7, T =w, IMPLEMENTATION 7 Public ownership of land, well-planned public im- provements and zoning were identified as three effective means to better growth management in the Corridor. A '@W SAIT t Public Acquisition Public acquisition is the purchase of land by government bodies. Its major benefit is that the land will not be developed in a manner unaccept- 4f, able to the controlling body. Department of of wetland areas is "T Natural Resources purchase an example, but public acquisition can take place at any level, state, county, city or township. & -W Wv" a 4 WW", However, some problems do exist with public aqui- ""MY" sition. The cost of purchasing land sometimes may be prohibitive especially to smaller juris- dictions, and the purchase removes the land from the -local tax roles as well. In some cases local sentiment would oppose such action. Townships and county governments should examine WASHBURN this form of management tool, but should also TAT ION RANGER S be aware of all effects such a purchase might have within their jurisdiction before any such 71 endeavor begins. CHE(XAMEGON Certain locations along Highway 13 have unique ATI A@,ft resources and scenic values for motorists. Citizen committee members felt that these scenic highway areas should be preserved wher- ever possible. One way to accomplish this Aftk would be to purchase easements that would pro- tect these areas, yet allow the property owner ARTMENT OF 4GRICULTUI to utilize his land. -43- Public Improvements Cluster development was encouraged by the com- mitees as an excellent way to develop a con- trolled growth. The position of community facilities can encourage cluster development, and in general, concentrated growth patterns. Providing such services as water and sewer, and new roads can attract growth because of lower individual costs and can reduce the community's cost of providing necessary ser- vices to its residents. In the Bayfield Peninsula particular attention should be focused on the problems associated with waste disposal systems in the heavy clay a soils of the region. To this end, most com- munities have established or are planning BAYFI,t,LD OUNTY", municipal sewage treatment systems or sani- C tary districts. Port Wing, the townships of S"ZONED Clover and Bell, Red Cliff, Bayfield, and Washburn all have these facilities. In addition, the Pureair Sanitarium site be- tween Bayfield and Washburn also has a waste treatment system that could be utilized for nearby development. In planning for development in the Highway 13 Corridor the public facilities for each community should be designed to accommodate new growth and Z9 planned in such a way as to have a positive, 7A, not a burdening effect on growth in the area. Zoning The most readily available tool for imple- menting the Highway 13 Corridor plan is zoning. Currently, seven of the eight Highway 13 townships use zoning as a means of -44- guiding future growth in their jurisdiction. However, the present county zoning ordinance does not address the special needs of protec- ting and maintaining the Highway 13 Corridor as a transportation rOL.-e and as a develop- ment area. To meet these needs a re-examina- tion of zoning within the corridor was necessary. (it MAIION Many of the concerns expressed at early meetings could be handled through zoning changes. They include: f9Z 4UN, m sprawling commercial development m too many highway accesses m eyesores caused by signs and junkyards m insufficient highway setback n locations of trailers and mobile homes m protection of sensitive environmental areas Meeting #5 Zoning Changes JR To complement the recommendations made in the plan map, citizen committees suggested zoning changes that would guide all future development in the corridor. Two types of management de- :Ak vices were examined. One involved the determina- tion of zoning districts that would correlate with the plan map. The other device would be in the form of non -mappable zoning regulation changes. These will be discussed first. The following recommendations were discussed exclusively for the Highway 13 Corridor! -45- 1. Extend present building setbacks of one hundred ten (110Y feet to one hundred thirty (130) feet. 2. Require 600 foot spacings between access roads for separate uses. 3. Allow industrial and commercial uses a maximum of two driveway accesses; a maximum of one driveway for all other uses. 4. Protect critical wetland areas, create a wetland building setback requirement of 75 feet. L, 5. Prohibit junk or salvage yards within the Corridor. 6. Limit development within 300 feet of any intersection of Highway 13 with an- 4 other public road. 7. Chequamegon Bay townships - restrict mobile homes to established mobile home parks. 8. Select cutting of brush along Highway 13. Mapped Zoning Changes Table 14 shows a comparison of zoned versus Q'Z"' used acres for residential and commercial M :W purposes, the most common types of development. As can be seen from the first three columns, only a small percentage of zoned land is actu ally being used. Adding in the projected land use needs (Column 4) still leaves a large amount of available land for development (Column 5). -46- TABLE 14 ESTIMATED LAND USE ACREAGE ZONED ACRES, PRESENT USE ACRES, AND PROJECTED ACRES NEEDED BY YEAR 2000 IN THE APOSTLE ISLANDS HIGHWAY 13 PROJECT UNINCORPORATED AREA (Up to 1-2 mile either side of the highway): For use in Organizing Citizen-Local Official Mapping of Spatial Plan Alternatives for Year 2000 I. Combination of Residential and Commercial Development Areas (outside incorporated areas) (2) (3) (4) (5) (3)-(4) (1)-(2) Projected Difference Between Land All Zoned Used At Unused, but Needed Land Available (Zoned) and Land Township Acres Present Zoned (2000) Needed for Year 2000 Barksdale 739 ac 180 ac 559 ac 90 ac 469 ac, tayview (530) (171) (359) (124) 235 Bayfield 1,505 290 1,215 72 1,143 Russell 456 172 284 58 226 Bell 1,370 165 1,205 34 1,171 Clover 1,378 129 1,249 34 1,215 Port Wing 2,046 195 1,851 24 1,827 Orienta 2,423 34 2,389 24- 2,365 Sub-Total 10,417 1,136 1,111 460 8,651 acres Tourist Industry (A.I. Economic Impact Study) 123 ac TOTAL 583 acres Industrial acreage (presently 1,809 acres as sessed for manufacturing in Barksdale Township/no other manufacturing acreage in unincorporated area of corridor). -47- Two problems can be seen from this. First, when only a small amount of development will take place in a large zoning district, the resulting development pattern can result in random or sprawled use. Secondly, within a large zoning area marginal or unsuitable land often can be found. By exami- ning these large developmental zones and priori- tizing smaller growth areas onto them, the most suitable land can be utilized. Removing the marginal areas from development zones to other uses is also beneficial in protecting the en- vironment and preventing investment losses. Plate 15 is the proposed zoning map that would supercede present zoning within the Corridor. (A legal description of the Corridor is in- cluded in this plan.) These recommendations _7@ are by Corridor residents and will be subject to approval by local governing bodies. Here is a summary of the proposed changes: _" @71 N SOUTH SHORE Bell Township MA_11@' Z' Development should be encouraged in and around the village of Cornucopia where the sanitary district is now under formation. Where hook- Z@%; ups to this system are available zoning should V be Residential-1 otherwise R-3 to provide for medium lots. Coastal areas should be zoned R-2 or large lot zones to accommodate rural, "T uncrowded living and also for sanitary system purposes q@g 4" should be rezoned into forestry or conservancy Low land areas west of Cornucopia districts since they are not suited for farming. -48- Clover Township Clover residents mapped areas of high and low density development and these should be zoned R-1 and R-3 respectively. Low lying lands should either remain in the forestry district, or better yet, in a conservancy zone. Com- mercial development would be limited to the present commercial area within Herbster. Orienta Residential zoning far exceeds the needs in Orient.a township. All land within the Corridor south of Highway 13 should be rezoned to for- estry or agriculture zones,with residential '@V growth being directed toward the mouth of the Iron River, or the already existing Orienta _7 Falls subdivision. No commercial development is needed in the corridor. 4 Port Wing Three development areas have been seL up by 44- Port Wing residents. Priority should be given ;Z to the area nearest the existing village of -4 "'U Port Wing where hook-ups can be made to the existing sanitary system at minimum cost. Shoreline development should be set well back from beach areas. The shoreline northeast of Port Wing should be preserved for scenic 4, T_ rl purposes. CHEQUAMEGON BAY Barksdale Development areas include land immediately -49- south of the Washburn city limits on the west side of Highway 13. Lakeside development should be limited to already existing structures due to lowlands or erosion problems. The Barksdale Superior DuPont site should be kept available for pos- sible industrial expansion. A- Bayfield WarShburn Changes in Bayfield township are numerous. Most residential growth should occur south of the dietd city of Bayfield, especially where a possible hook-up can be made with the idle Pureair sani- 0"@ ft tary treatment facility. Agriculture and For- k "4 estry zones should be maintained as shown and residential development north of Bayfield should be limited to larger lot sizes R-2 or R-3, especially near shore erosion areas. Commercial development should be kept to a minimum along the Corridor if allowed at all. In the Bayfield area where scenic diversions are important to the local economy, special care should be exercised in developing commer- cial interests, The northwestern portion of Bayfield township (T.51N, R.5W) is primarily forestry and agricultural zones with little residential development. This pattern should be continued. Bayview Study participants recommended that further residential and commercial growth along High- way 13 should be discouraged. Instead, the land should be used primarily for agricultural and forestry uses. -50- The town of Bayview should recognize that it pro- bably will be subjected to pressure for sub- stantial growth in the near future and as such should begin to plan for this new growth. Plan- ning and zoning used properly by the township would prevent major problems from developing and would allow more local control in such matters, rather than acting in a reactionary manner to ON- problems that have already occurred. Russell Russell Township participants recommended that current residential land will suffice for future needs and few changes would be necessary. They did feel that more commercial land would be needed and plotted two areas at the junctions of County Trunk K for this purpose. A; Red Cliff Reservation The Red Cliff area is currently undergoing a land use planning effort with the Tribal Plan- ning Office and as such, no plans can be made until that program is completed. However, preliminary indications show new residential and commercial areas are being planned within the village itself. Cities of Washburn and Bayfield Although this plan primarily studies the rural @Z portions of the Highway 13 Corridor, there was '41 also interaction with incorporated areas. Both cities do have their own comprehensive plans and zoning ordinances which address the needs within these communities. -51- However, in both communities growth may eventu- ally take place outside of the corporate bounda- ries. As these land developments can have a direct effect on the cities, there is a need 'Pb for the communities and the neighboring townships Z @'rNu to be prepared to initiate a special zoning program, "'Zm Z_- "et called extraterritorial zoning. The W_ provisions for extraterritorial zoning are de- fined in Chapter 62.23, paragraph 7a of the Wisconsin Statutes. It is a recommendation of this study that both cities in the Highway 13 Corridor, together with their neighboring townships, examine the benefits of extraterritorial zoning and work together toward managing development that might affect both Jurisdictions. 17' Other Recommendations In addition to the zoning and mapped recommenda tions, the project participants also agreed upon the following suggestions: 1. Concerning developmental matters in the Chequamegon Bay Corridor area, there should be more cooperation between the township boards and city councils on matters of im- portance to both. This is especially true in areas just beyond city limits where strong pressures to develop exist and the influences would be shared by both juris- dictions. 2. Decision makers, whether they are city or town boards, or the county zoning committee RE should act to protect the investment of adjoining land holders when making de- cisions on possible new development. Also, -52- decision makers and land owners should be F7 acutely aware of the sensitivities of the physical properties of land (slope, soils moisture content) before they develop. IV, -of-way between t 4,; 3. The abandoned railroad right k;""C 1 4je I Washburn and Bayfield should be investigated 4 its as foil-, -motorized uses. (Note: a trail for non J consin Department of Transportation has con- since this recommendation was given, the Wis ducted a title search in effort to purchase the right-of-way from the C&NW Railroad. Its findings showed railroad holdings by several methods, including both fee simple- acquisition and some easements with re- 4 newal clauses back to the previous pro- P perty owners. Thus, ownership by the De- partment would be incomplete, and additional k purchases would be necessary to pursue a t; recreational trail.) 4. The Residential-Recreational zoning distr ict of the county zoning ordinance is too broad in its coverage. Many of the uses allowed in the district are not compatible with the intended purpose of this zone. It is fur- ther recommended that the permitted and conditional uses of the R/R district be re- evaluated to exclude those uses which would not be compatible in such a district. 5. The county and all townships should require a buffer zone of trees 50 to 100 feet in 10 scenic highway from the visual blight of depth along the highway to screen the any clear-cutting or other logging operation. @ lv, -53- SCENIC RECOMMENDATIONS A visual analysis by automobile was made of the High- 1. Maintain visual corridor of existing views. way 13 Corridor to identify significant views and major features both natural and man-made. Significant 2. Develop new vistas where possible (See Plate 11). views of the Lake, Chequamegon Bay, unique features and major landforms are indicated on Plate 8. 3. Consider scenic easements for view retention of Potential views are also shown and indicate locations Lake and Bay vistas (See Plate 12). where selective cutting of vegetation between Highway 13 and the Lake would create new vistas. 4. Maintain rural visual character between Examples of major features identified are campgrounds, communities. waysides, historical markers, unique architecture 5. Develop pull-offs and scenic overlooks at (e.g.the Old Rittenhouse Inn and Red Cliff Arts recommended locations. Center) and cultural amenities such as the Barn 6. Maintain entrances to communities as pleasant Mural north of Washburn. and uncluttered (See Plate 13). The visual analysis of the Highway 13 Corridor iden- 7. Maintain visual buffer of trees along High- tified areas of high scenic quality based on the following criteria: way 13 at logging and timber operations especi- ally when clear-cutting is used (see Plate 14). 1. View distance 2. View variety (the number of elements in 8. Initiate sign ordinance (street) in areas view, i.e., land, water, trees ) of high scenic quality. 3. View duration (amount of time view visible) 4. 'View uniqueness Areas of high scenic quality are indicated on Plate 8. These areas have been identified to provide a base for management objectives of the visual resource. If the existing scenic character of the Highway 13 Corridor is to be maintained in a manner as not to detract from its-variety and quality, the following visual management objectives should be considered: -54- WOW- Ole Develop new vistas where possible -55- 0 Consider scenic easements for view retentioll (if Lake and Bay vistas -56- PLATE 12 OEM soma 6-00 ftft %ft 1"4 Develop pull-offs and scenic overlooks at recommended locations Op'" PLATE 13 -57- Oka *Ift 64ft JA- .00 afte Maintain visual buffer of trees along C Highway 13 at logging and timber operations especially when clear-cutting is used -58- PLATE 14 CONCLUSION Unquestionably, the Highway 13 Corridor will experience new growth in the coming years. In some areas this growth will be moderate and easily managed. In other areas the growth na, @@V V, will be rapid with possible conflicts occur- ring in prime highway locations. With vigilance in monitoring and guiding new development, an efficient and safe transporta- tion corridor can be maintained and an im- proved residential, business, and recreational environment can be achieved. Local governments are in the best position to At guide the future of the Highway 13 Corridor. Local officials must be prepared to look ahead and make decisions with the best interest of 4ffl@ the region in mind. This plan has been pre- pared to assist the local officials in making such decisions. 7 This is only the first step, however, The recommendations of this document should be periodically reexamined and updated to in- sure a dynamic growth management system T capable of addressing new problems in the future. -59- 0 Recommended Lf P Zoning HIGH iucopiai CORRI L kesi 10 rn un Y:!:: Herbsr . pavo K -v) _ 7- , I - - ,, @l - 4- _C -OVER Port y Al Wing- `j ME LEGEND Av J1 A- - I M. R 1 or R 4 pie" Ji@ORT *Nd L _j _7 or R 3 RESIDENTIAL R2 _4' 7777iw-- '17 7, ...... ... .. ED RESIDENTIAL- RECREATIONAL 6RI E COMMERCIAL v ro @8' INDUSTRIAL E3 AGRICULTURAL r'-7-'FORESTRY CONSERVANCY NOS ![OR VIE. 00 I! Sand A K ISLAND J., 7 P&SELL 11 L I/ T N N@A gpp 3+ W WH 71-7 - Al@ 10- M !TY j, 28, 3. J@ B11-KNE B A@FIE -4-4- i. L 41, leld @6 1 '6 1@ A ee IRE ";::.: ..1 -11 - 17, 2.8 "w. 7 Y @La Pointe 47 MADELINE /If ISLAND ME All BANIVIEW @7 -i 7 7 ,7 ji, 't-, Irr nm S.., UR-100, Ho& 1@ 24 -3 B,,. �0 -g-A. I \\N WA$HBURN % 4 11 burn X o I 1W.8 .. .. 1OFF W@ T o" . SHo mas gaps g 6 -Xi: IjS 6ALEI _77 Ir T Ar L lz@ AS Ina -T I-- V ;A IA -".T "1 16 PLATE 15 SCALE 1 2 3 Miles VU -i- OTj -:Ay 41 ),4, It; 0 Ik wis 4 ,ftm T'r A's APPENDIX A DRAFT OF ORDINANCE LANGUAGE ESTABLISHING AN APOSTLE ISLANDS HIGHWAY 13 CORRIDOR OVERLAY DISTRICT AS PART OF THE BAYFIELD COUNTY ZONING ORDINANCE Statement of Intent It is further the intent of this ordinance to recognize an area designated the Apostle Islands Highway 13 Corridor as a,linkage of the state highway system important to the general welfare of northern Bayfield County, its public and its member jurisdictions, and to foster, therefore, orderly development on lands adjacent to the roadway. Statement-of Purpose The purpose of the ordinance is to accomplish the above as well as the following additional purposes along the Apostle Islands Highway 13 corridor: (1) to assure orderly land development needed to realize the full benefit of the area's economic potential; (2) to pro- tect the public investment in this established roadway; (3) to permit the establishment of facilities needed to serve the special needs of persons and vehicles traveling this route; (4) to promote safety through prevention of congestion by access control and right-of-way protection; and (5) to reserve areas of en- vironmental or aesthetic value needed to maintain the distinctive character of this Lake Superior coastal corridor. -63- 1.0 GENERAL/1.02 Compliance When the Apostle Islands Highway 13 Corridor Overlay District provisions and the under- lying zoning regulations conflict the most restrictive combination of regulations shall apply. 3.0 SETBACKS AND ACCESS/3.01 Shoreline and Wetland Setbacks Within the defined boundaries of the Apostle Islands Highway 13 Corridor Overlay District such structures shall also normally be set back a minimum distance of seventy-five (75) feet from the boundary of any wetland as defined in the definitions' section of this ordinance and as interpreted by the Zoning Administrator on the basis of field investigation. 3.0 SETBACKS AND ACCES.S/3.02 Highway Setbacks From From Center Right-of-Way Class of Highway Line Line A.I. Hwy 13 Corridor' 130' or '70' whichever is greater Other State & Federal 110' or 50' County 75' or 42' Town 63' or 30' Setbacks along county and town highways within the Apostle Islands Highway 13 Corridor Over- lay District shall conform to the standards for their respective class except for a distance of three hundred (300) feet measured back a- long the county or town road from the center point of its intersection with Highway 13. -64- Where any public highway, of any class, inter- sects Highway 13 no visual obstructions shall be constructed, maintained or permitted to grow to a height greather than two and one- half (21-,,) feet within a triangular area des- cribed by a straight line connecting the two points measured three hundred (300) feet back along the center lines from the intersecting center lines point of H-ighway 13 and the other public highway. 3.0 SETBACKS AND ACCESS/3.06 Junk and Salvage Va-rdSetbacks No junk and salvage yards shall be allowed within the Apostle Islands Highway 13 Corridor Overlay District. 3.0 SETBACKS AND ACCESS/3.08 Highway Access It shall be the policy of the Bayfield County Zoning Committee to encourage access to Highway 13 via either existing arteries or frontage roads. Normally, direct and pri- vate access to Highway 13 shall not be per- mitted within one thousand two hundred (1,200) feet of the intersection of this highway with another public road, regard- less of highway class. Elsewhere along Highway 13 direct, private access shall be permitted at appropriate locations no closer than six hundred (600) feet between separate land use access points. Insofar as possible, private access points along either side of Highway 13 shall be located directly across the roadway from each other. The number of private accesses permitted to Highway 13 for any one land use shall be set as follows: -65- Maximum Number Land Use Type of Accesses Commercial and Industrial 2 All Others 4.0 REMOVAL OF VEGETATIVE COVER Regulation of the removal of forest cover from shorelands along navigable waters and from lands adjacent to roadways within the Apostle Islands Highway 13 Corridor Overlay District is necessary to control erosion, protect the scenic beauty of these areas, and to reduce effluent and nutrient flow from the shoreland. 4.02 Apostle Islands Highway 13 Corridor Forest Cover Removal All commercial logging operations undertaken within the Apostle Islands Highway 13 Corri- dor Overlay District shall be required to maintain a buffer zone of undisturbed for- est vegetative cover between the center line of Highway 13 and an imaginary parallel line seventy-five (75) feet either side of the center line for the entire extent of the cut over area. 8.0 MOBILE HOMES/8.01 General Within the Apostle Islands Highway 13 Corridor Overlay District in the townships of Barks- dale, Bayfield, Bayview, and Russell mobile homes shall be located only within mobile home parks established in accordance with the pro- visions of Section 8.02 of this ordinance. -66- 12.0 JUNK AND SALVAGE YARDS/12.02 Shorelands and Apostle Islands Highway 13_Corridor Junk and salvage yards shall not be located in the shoreland and floodplain protection districts, nor shall such uses be permitted within the boundaries of the Apostle Islands Highway 13 Corridor Overlay District. 20.0 ZONING DISTRICTS, DIMENSIONAL REQUIREMENTS/ 20.01 Zoning Districts H-13 Apostle Islands Highway 13 Overlay This district is intended to recognize the importance of Highway 13 to the welfare of northern Bayfield County and to provide for orderly land use and development on lands adjacent to the roadway. Prior to utilization of any land, structure or buil- ding within this overlay district, the land shall be zoned to the proper under- lying district. The provisions of the overlay district, as identified and des- cribed throughout this ordinance, shall be in addition to and prevail over the provisions of the underlying zoning dis- trict except where the latter may be more restrictive. 20.0 ZONING DISTRICTS, DIMENSIONAL REQUIREMENTS-/ 20.02 District Location and Boundaries In addition to being shown on the official zoning maps of Bayfield County, a verbal description of the boundaries of the Apostle Islands Highway 13 Corridor Overlay District, determined by the County Zoning Committee in consultation with the Town Boards of the . affected townships, is attached as Appendix C hereto. -67- LEGAL DESCRIPTION The Highway 13 Corridor shall be described as follows:* I Barksdale Township TWN 48 N R 4 W All of sections 7, 18, and 19 TWN 48 N All of sections 25 and 36 R 5 W Section 13 - SEI-4; V-2 of NE-4 Section 24 - E1-2; SW1-4 Section 26 - E31; El@ of SW!4 Section 35 - E]@; V-2 of W-2 Bayfield Township TWN 51 N All of sections 13, 14, 15, 19, and 20 R 5 W Section 16 - S@ Section 17 - SE14: SE14 of SW14 Section 21 - NI-1 Section 24 - Nil of NE14 TWN 50 N All of sections 22, 23, and 27 R 4 W Section 1 El@ Section 12 E-@; El@ of W'@ Section 14 SW-4; S@ of SEk Section 15 SE14 of SE4 Section 21 SEk- Section 28 Ei TWN 50 N R 3 W All of sections 6 and 7 The land descriptions lying within the incorpor- ated area of Bayfield and Washburn, and those lying within the Red Cliff Indian Reservation in Russell Township, apply through the Bayfield County Zoning Committee as recommendations without the force of jurisdiction. -68- Bayview Township TWN 50 N All of section 34 R 4 W Section 32 - SE!4 Section 33 - E1-2; SW-4; SE1-4 of NWI-4 TWN 49 N All of sections 4, 9, 16, 21 and 28. R 4 W Section 5 - E-12; E-12 of WI-2 Section 8 - E@; NE14 of NW4- Section 17 - E-2 of NE@4 If all coastal areas are included: All of section 22 and 27 Bell Township TWN 50 N Section 3 - NWk of NW1-4 R 6 W Section 4 - N-2 Section 5 - Nil Section 6 - N1-2; W4, W1-2 of SE;4 TWN 51 N All of sections 24 and 25 R 6 W Section 31 - S1-2 Section 32 - S1-2 Section 33 - S-2 Section 34 - N-'@; SW!4 NW!4 of SE!4 Section 35 - N-12 Section 36 - NWI-4: N-2 of NEk Section 26 - Sl@ Section 27 - Sl@ If all coastal areas are included: TWN 51 N All of sections 22, 23, 26, 27, 29, R 6 W 31, 32 and 33 -69- Clover Township TWN 50 N All of sections 5 and 6 R 7 W Section 1- N1-2; N@2, o f S 1-2 Section 2- N1-2; SW-4; N1-2 of SE1-4 Section 3- NE!4; S3@ Section 4- S@ Section 7- N1-2; SWI-4; N-2 of SEI-4 Section 8- N-2; N 11 o f S W-4 Section 9- N-2 Section 10 -N'@ TWN 50 N If all coastal areas are included: R 7 W All of sections 3 and 4 TWN 51 N All of sections 23, 24, 25, 26, 27, R 7 W 33, 34, 35, and 36 Or ient!@,_@s@hi TWN 49 N All of sections 4, 5, and 6 R 9 W Section 3 - N-2; NW-4 of SW-4 Section 7 - NW4,; W-2 of NEk; NEk of N04- Section 8 - N-, of W4-- NW-4 of NEk TWN 50 N All of sections 25, 33, and 34 R 9 W Section 35 N1-2; SW1-4; Nl@ of SE!4 Section 36 A Port Wing Township TWN 50 N All of sections 11, 12, 15, 21, 29, 30 R 8W Section 13- N-2 Section 14- N-'j; SW-14; Nl@ of NI-2 of SE14 Section 22- V-2; N!@ of NE'-,,; S1414 of NEk; MV4 of SEk Section 27- N-2 of NW-4; SWI-4 of NW-4; NA4 of NW-4 Section 28- N-'@; SW-4; N-2 of SE1-4; SW-4 of SE@4 Section 31- N1-2 Section 32 - N-2 Section 33- N1414; NWk o f NE!4 If all coastal areas are included: All of sections 19 and 20. -70- Russell Township TWN 51 N All of sections 20, 27, and 28 R 4 W Section 17 - SW-4- Section 18 - Sl@ Se-ction 19- N-2 Section 21 - SW-4 Section 23 - S@ of Sli Section 24 - S@ of SW!4 Section 25 - SI-2; NWk; S-2 o f NE14 Section 26 - N-'@; W-2 of S@; SW!4 of W4- Section 29 - V-2 Section 36 - NEk: NEk of NWk TWN 51 N All of section 31 R 3 W Section 30 - SW-4; S-12 of SEk City of Bayfield TWN 50 N All of section 13 R 4 W Section 14 - NE14; NI-2 of SEI-4 City of Washburn TWN 49 N All of sections 32 and 33 R 4 W TWN 48 N All of sections 4, 5, and 6 R 4 W -71- APPENDIX B roadway itself. They also provide an understan- ding of what evoked the Highway 13 Corridor 13 ABSTRACT OF HIGHWAY 13 TRAFFIC, LOCATION MAIN- growth management concern in the first place, TENANCE AND IMPROVEMENT MAPS AND STATISTICS and what enabled it to generate the interest it has to date. State Highway 13 has been ever-present through- out this report due to its inextricable relation- Traffic Volume and Projections ship with the Apostle Islands Corridor and the Lake Superior Coast in Bayfield County. Yet, Plate 16 shows that traffic increases have the project's preoccupation with adjacent- varied, depending on traffic count location, area land use and growth potential issues has anywhere from 82 to 255 percent along Highway tended to ignore the roadway itself--its pro- 13 over the last fifteen years. These trends blems and its potentials. But those who wit- contrast quite significantly with the 75 per- nessed, and participated in, the monthly rounds cent average increases found throughout the of meetings around which this account is con- nine county Northwest Wisconsin District structed could readily testify to the pivotal during the same period. significance of the highway. Indeed, so strong was its influence that several parallel public Plate 16 also gives the scale and location information sessions were scheduled during the of traffic increases projected to 1990 on course of the project with Wisconsin Depart- the basis of expected growth levels, patterns ment of Transportation District Eight and related variables. Traffic volumes could Office personnel. These separate sessions exceed roadway capacity along several key stretches of Highway 13. At other points facilitated an exchange of views that was beneficial in several ways: 1) they provided volumes could come close to overload condi- a forum in which local transportation-specific tions if the trends prevail. problems and plans could be reviewed in detail, 2) they apprised local roadway users of recent Right-of-Way Distributions improvements and continuing needs irrespective of the Corridor Study, and 3) they provided a Plate 17 provides a generalized indication mechanism for allowing the project's main- of right-of-way widths along Highway 13. They stream goals--land use and growth management-- vary due to physical requirements for con- to continue more exclusively as the principal struction of roadway slopes and drainage focus of the public participation sessions described earlier in this report. The maps and statistics displayed below pro- District 8 of the Wisconsin Department of vide an abstract account of the information Transportation serves the following counties: which was exchanged and reviewed at these Ashland, Barron, Bayfield, Burnett, Douglas, parallel sessions on the condition of the Polk, Rusk, Sawyer, and Washburn. -72- Traffic Volumes Alp LEGEND 0 120 1963 AVG. DAILY TRAFFIC Sand Ba 4) 400 1974 0 F 820- 1990 PROJECTED A.D.T. L Y, E 174K 200 t Red 13&q - 13 70- 13 Cliff Cornucopia 630 320 Herbster 320 7-,q 0q/ - Z& ya (0 'fa 530 &io 350 17-32-11300 1702-71 Port Wing 4(e/- s3c? Bayfieldl 20:30 La 109#- @oin 220 C 520 570 11420- 1794 -350 V /, -35-8 6 2 0jq- Sqq Washburn cia A :3(190 Ashland 0 1 2 3 4M'. a' us SCALE BAYFIELD COUNTY PENINSULA 2 PLATE 16 -73- Hwy-13 Right of Way @- C-1 Sand Ba 0 LEGEND S 200- 400' 6, /00-111,1 --120' TOTAL R.O.W. WIDTH G6 I / (0(0' SCENIC EASEMENTISI 4-6 -120-150 Cornucopia ad 100 Herbste it 100' 120-/50' Ba ld Port. Win /yfie 120-150, /00 - IN . . . . . . . . . . . . . .... /00, 80-If a F,11.nta 120, /00-119, -900' 4201 '01 100 -1 lq, 100 - leo'- Was @rn 80 - qf'- /00,-0 Ashland 0 1 2 3 4mi SCALE BAYFiELD COUNTY PENINSULA PLATE 17 -74- provision. In many areas where recent highway in terms of the number of accidents per 100 improvements have not been undertaken, right- million vehicle miles traveled, are used to of-way widths are not sufficient to upgrade determine the relative safety of a particular the highway to current design standards. There- segment of roadway. By using this common de- fore, additional acquisitions would be neces- nominator of miles traveled, different segments sary for future improvement projects. of highway can be compared to each other or Roadway Deficiencies with statewide accident rates in general. Plate 18 indicates those sections of Highway Highway 13 accident rates vary considerably in Bayfield County, but are generally slightly 13 where critical roadway deficiencies exist. higher than state averages. Many accidents are These deficiencies which generally relate related to narrow shoulders, vehicles leaving to roadway geometrics, safety and maintain- the roadway, and collisions witil animals. bility were identified as a part of a De- partment of Transportation 10-Year Highway Highway Improvement: History and Potential Improvement Study. Deficiencies shown are those which are signifi- Plate 19 identifies those sections of Highway cantly below design recommendations for a 13 that have been upgraded in recent years as well as those sections where improvements are 55 mile per hour speed limit and/or below a still needed. Those improvement needs which tolerable level of roadbed maintenance. are directly related to roadway deficiencies and traffic volumes, have been identified Roadway width deficiencies are related to and given .priorities in the Department of the lack of usable shoulders, while pavement Transportation's Six Year Highway Improvement deficiencies are related to either (or both) Programing Study. structural failure or poor riding quality. Stopping sight distance and passing sight The construction schedule for the proposed distance deficiencies are directly related improvements depends on the availability of to the rolling vertical profile of the transportation funds and the comparative highway and, in some areas, to the sharp importance of various improvement needs. horizontal curves which limit traveling speeds to below the posted speed limit. Maintenance deficiencies, in addition to the pavement deficiencies mentioned ear- lier, include problems such as weak sub- grades, poor drainage, difficult shoulder maintenance, etc. Accident rates for the highway are directly related to roadway deficiencies. Accident rates as expressed -75- Roadway Deficiencies LEGEND Sand Bay,-, ROADWAY WIDTH PAVEMENT DEFICIENCY "p@ HIGH ACCIDENT RATE 5 STOPPING SIGHT DISTANCE .......... POSTED HORIZONTAL CURVES (<45mph.1 COP49 edf LIMITED PASSING OPPORTUNITIES lift ....... ... MAINTENANCE DEFICIENCIES (MOST COSTLY I POO win 'Ba@fieicf La Point e -0 Washburn A") Ashland 2 3 4mi, 2' SCALE I IELD COUNTY PENINSULA LBA-YF -76- PLATE 18 Hwy-13 Improvement Map Roadway Pavement and Safety Improvements heduled for Sc Sand River % 1980-86 Reconstruction 1957-8 Reconstruction /J4 Proposed for Port Win 1983-4 Improved in 1977-78 Improved in 1974 Scheduled for 1980 4@ 2 3 il,ni S C A 1, E 8AYFIELD, COUN f Y PLNINSULA -- ---- --- ------- rm S c edu 19 m j d e n f @ts 8@086 or P, _,_t w @PLATE 19 -77- APPENDIX C HIGHWAY JURISDICTIONAL CHANGES With assistance from Wisconsin DOT and NWRPC, Bayfield County completed a county-wide highway jurisdictional study at the request of the Bayfield County Board. The purpose of the study was to review the existing road system to ascertain the extent to which there exists an appropriate match between the function of each road and the governmental unit--state, county or local-- which administers it. The work was overseen by an advisory committee and the Bayfield County Highway Committee, and its recommenda- tions were subsequently adopted by the County Board of Supervisors. The study recommenda- tions, developed with the mutal consent of the jurisdictions involved, were phased so as to be implemented over time (short range/ long range) in a way that would be acceptable to the affected governmental units. Since they have direct implications for Highway 13 and this project, some of the key findings from the 1978 study are briefly outlined below. If more information is desired, readers are encouraged to contact the Bayfield County Highway Commission or the Courthouse in Washburn for a full copy of a Jurisdictional Highway System Plan for Bayfield County (NWRPC and WI DOT, 1978). -78- RECOMMENDED JURISDICTIONAL CHANGES Long-Range Jurisdictional Considerations Changes of Critical Need As traffic to the Apostle Islands National Lake- shore increases, consideration should be given 0 Convert Little Sand Bay Road between County to converting CTH K to a state highway. As Trunk Highway K to the National Lakeshore traffic to the National Lakeshore increases to from Local to County Jurisdiction. the point that STH 13 has volumes exceeding capacity a significant portion of the time, Due to the regional and national scope of consideration should be given to converting CTH the Apostle Islands National Lakeshore, park A to a state highway. CTH A and STH 27 and facilities located at Little Sand Bay meet the Pease Road would provide an attractive alternate land use service index of a collector. to USH 63-STH 13 from the Hayward area to the AINL area. Estimates suggest that by 1980, 144,000 yearly visitors might be expected in the AINL area. In addition to capacity problems on STH 13, con- During the peak tourist season, hourly traffic gestion in Washburn and Bayfield could be volumes along,nearby roads will become re- avoided and it would provide the visitors from latively high as many visitors make additional the south of Hayward a "loop route" to see more short trips nearby. Traffic volumes generated of the lakeshore and countryside. Plate 20 by present AINL operations affect this road shows those jurisdictional changes which, in to the extent that it is an undue burden and addition to the changes listed as critical, are cost on town government maintenance. CTH K recommended by the study committee, Specific and Little Sand Bay Road receive increased long range changes necessary to develop a dir- traffic volumes in that they provide the ectly relatable jurisdictional and functional main route to AINL facilities. Projected system include: traffic volumes indicate that the AVerage Daily Traffic (ADT) on Little Sand Bay Road, M Convert Little Sand Bay Road to National though it is a stub-ended route, will qualify Park Service Jurisdiction it for classification as a minor arterial by 0 Convert the Star Route Road from Local 1990. to County Jurisdiction 0 Convert Siskiwit Road to County As an interim measure, it is recommended that Jurisdiction Little Sand Bay Road be classified as a col- lector under county jurisdiction. This would relieve town government of the burden and ex- pense related to maintaining the road to a National Lakeshore. Until such time that the National Park Service can assume jurisdiction of the road, it is recommended that it financi- ally assist Bayfield County for costs incurred in improving and maintaining the road. -79- LONG RANGE JURISDICTIONAL CONS4 ONS Ttt, $AND SAY RD. k BARK POINT RD. H 13 7 ST T io m .... . .....1 4 Y @O r 1 "T-4 Iwo _41 J__ il4 7 ip, 4 7 LEGEND Ell. V. 77uy FROM STATE TO COUNTY Z_ JURI SDICTION 4.- T,4-1 4 t @7 FROM LOCAL TO COUNTY JURISDICTION FROM COUNTY TO STATE JURISDICTION MAW_ 17 o c, oo FROM LOCAL TO STATE JURISDICTION J Is XXXXXX FROM COUNTY TO NAT'L V7 PARK SERVICE JURISDICTION F@W s 384 -902 At .... ...... . ... 4 - Fk, R 191 0 f SCALE 0 2 4 6 MILES @Bayfield County Jurisdietional Highway Plan m_ Scenic/Diversion Routes Consideration should also be given to developing some type of bicycle route between the Bayfield Relieving the travel demand in both the US 2 and area and Little Sand Bay. As resources permit the STH 13 corridors involves distributing other specialized bicycle trails should be traffic more evenly throughout the transporta- pursued. tion network. The existing network is predomi- nately made up of local roadways which are not In addition, consideration should be given to heavily traveled and which typically traverse designating bicycle routes along some of the scenic undeveloped areas.. It is consistent more scenic-lesser traveled routes. Generally with the interest of many area visitors to they include the collector and local routes assist and encourage them in identifying and traveling on many of these routes. Bicycle Routes Although there are currently no marked bicycle routes in Bayfield County, the strong recrea- tional attraction of the area and the growing interest in bicycling, illustrate the need for attention. Where developed, separate bicycle trails prove to be a valuable asset and a strong recreational attraction. The study advisory committee recommends that were possible special trails be developed to accommodate bicyclists. One very logical lo- cation for the development of such a trail is along the abandoned Chicago and North Western Transportation Company right-of-way between Washburn and Bayfield. *The Wisconsin Department of Natural Re- sources and the Department of Business Develop- ment have jointly produced a Bicycle Trail Brochure which gives the location of the North-South Bicycle Trail through Bayfield County. -81- C-4 C-4 @d 0 0 0 0 M F-I > @U Ln 10 Id 4- 0 w w M (D N) W F- F- n 0 0 0 M 0 P. ll@i t-i " a, rt rr rt rt Id rr la, rD H- Fl, 0 0 o 0 0 0 rt H. rQ N.) ::Yl :@, r. 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(b Fj (n w N En Fj (n C) PROJECT PERSONNEL Staff Report Preparation and Presentation Mark Middagh, Project Planner Gerald Fitzgerald, NWRPC Editor Northwest Regional Planning Commission Bob Bowen, NWRPC Drafter Betty Dreis, NWRPC Typist Interagency Advisory Committee Bill Lontz, Harry Lowe University of Wisconsin-Extension Bay-field County and Hayward Area Office David Lee Bayfield County Zoning Administrator Al Lorenz, Don Wilson Wisconsin Department of Transportation Kim Bro University of Wisconsin - Sea Grant Dennis Van Hoof Coastal Resources Planner, NWRPC Phil Scherer Northwest Regional Planning Commission Additional Assistance Provided by: Steve Andrews, Dick Livingston, Mark Mueller Northwest Regional Planning Commission Clarence Austin, Ashland Soil Conservation Service Don Bergman, Martin Forbes, WDOT Harry Jensen, Red Cliff Tribal Office Tom Klein Sigurd Olson Institute of Environmental Studies Earl Thedens, Architectural Resources, Inc, @*Cvftondc devewrnbent distrw Tony Wilhelm, Wilhelm Engineering 302 Ulakwt Street 4)mw Wiscwtsin 54" - 71S 63S-2W . . 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