Open Space Report 1996-2000

Adopted By

Dane County Board of Supervisors

September 19, 1996

Prepared by the Dane County Park Commission and
the Parks and Open Space Plan Advisory Committee with
assistance from staff to the Dane County Regional Planning Commission

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Dane County Park Commission

William G. Lunney, Chair

Otto Festge, Vice Chair

Elizabeth A. Lewis, Secretary

Susan King

Darold Lowe

Scott McCormick

James Mohrbacher

Jeanie Sieling (former)

PARKS AND OPEN SPACE PLAN ADVISORY COMMITTEE

William G. Lunney, Chair

David Blaska

Eugene Craft

Kevin Kesterson

Elizabeth Lewis

Darold Lowe

Jeanie Sieling

Joan Weckmueller

Dane County Parks Department

Ken LePine, Director

James G. Mueller, Parks Planner

Douglas Haag, Conservation Fund Manager

Dane County Regional Planning Commission

Dean S. Severson, Land Use Planner

Louise Lagier, Program Assistant

Jill Bates-Warren, Graphics Section Supervisor

Dan Seidensticker, Cartographer

Steve Wagner, Graphics Specialist

Operations and Maintenance

Mission and Program: To operate and maintain a system of 27 parks and 9 planned resource protection areas for the citizens of and visitors to Dane County. To provide a diverse resource for quality outdoor recreation opportunities, special activities and an interconnected recreational resource system through a network of trail corridors. Provide quality service to our customers through education, volunteerism, and direct service.

This program represents the foundation from which the park system is based. Manage and maintain the county's investment in the park system. This accounts for 80 percent of our department's responsibilities. Stewarding the land and providing resources the public can use includes a wide variety of tasks including visitor protection, customer service, forestry, grounds, trails, construction, boat launches, equipment maintenance, playgrounds, recreational equipment, water systems, sewer systems, roads, parking lots, winter recreation and education. In addition, the Department provides a reservation system for campsites and shelters, special events and a permit system for a wide variety of recreational activities from launching boats to walking a pet. This program also performs work for other county departments including Human Services, Sheriff, Exposition Center, Facilities Management, Public Works and the Zoo.

Planning and Development

Mission and Program: To provide long and short range planning for Dane County in the areas of parks, resource protection and historical preservation. To provide long- and short-term planning, supervision of development projects for the Dane County Park System. Planning and development also includes the naturalist/ ecologist program, which provides upland and wetland restoration and trail development for the park system.

The Dane County Parks Department has had an active role in countywide planning for recreation, open space preservation and resource protection. In addition, this program provides specific park plans, specific facility plans, special funding requests for new and renovation projects, and the supervision of construction and implementation of development projects. The Dane County Park and Open Space Plan for 1996-2001 has comprehensive goals for acquisition and preservation. Master plans for the existing 27 park areas are also a task for this program. The naturalist program provides upland prairie restoration, vegetative management of all natural areas, outdoor education programs in the schools and for various groups, along with assisting nature hiking and ski trail layout. The naturalist program operates with one full-time employee and hundreds of volunteers each year.

Land Acquisition and Property Management Mission and Program

To preserve and acquire historical and archaeological resources, and land and water resources for the use, benefit and enjoyment of the citizens of Dane County. To manage property use agreements affecting lands under the jurisdiction of the Dane County Park Commission.

The Land Acquisition and Property Management Program focuses on acquiring cultural and natural resources, seeking alternative funding, and granting sources for acquisition and other county park programs. Establishment of private and public partnership for acquisition and development projects is a means of accomplishing county goals.

History

The history of Dane County's parks system goes back to 1935 when the first county park, Stewart, was acquired. Between 1935 and 1969, a total of 12 parks were acquired. These include: Stewart (1935); Babcock (1936); LaFollette (1936); Goodland (1937); Mendota (1951); Brigham (1952); Fish Lake (1959); Riley-Deppe (1962); Festge (1963); Half-Way Prairie (1964); Token Creek (1966); and Lake View Woods (1967).

In 1970, Dane County adopted its first Parks and Open Space Plan. The plan was "....intended to serve as a guide for the acquisition and development of parks and open spaces by the county." The adoption of the plan also enabled Dane County to participate in the Federal Land and Water Conservation (LAWCON) Fund grant program, the Outdoor Recreation Act Program (ORAP), as well as other state and federal funding programs. Utilizing LAWCON and other funding sources, the county purchased the following parks and resource areas between 1970 and 1980: Cam-Rock (1970); Viking (1972); Walking Iron (1972); Lake Farm (1973); McCarthy (1974); Indian Lake (1975); Fish Camp (1976); and Salmo Pond (1980); as well as initiating projects for the Cherokee Marsh (1970) and Nine Springs E-Way (1976); and acquiring or accepting Holtzman resource area (1973); Phil's Woods (1974); and Schumacher Farm (1978).

The County adopted a Short Range Open Space Program in 1975 and completed the first major updating of the 1970 plan with the Parks, Open Space and Outdoor Recreation Plan in 1983.

Beginning in 1990, the Dane County Park Commission has broadened its scope to focus on resource protection and providing connections between communities and the surrounding parks and resource areas. These goals were detailed in the Parks and Open Space Plan for Dane County, Wisconsin, 1990-1995 adopted in 1990. Since 1990, Donald Park has been donated to Dane County and project plans have been completed and acquisitions begun in the Ice Age Trail Junction Area and Lower Mud Lake Area.

PAST PLANS

Dane County has prepared county-wide plans to guide future decisions relative to regional and community development since 1973. The County Land Use Plan (1973), Water Quality Plan (1979), Regional Development Guide (1985), Environmental Corridors (1983), and the Dane County Greenspace Plan (1991) have all provided an overarching framework to guide decision making throughout Dane County.

There have also been a number of county-wide parks and open space plans prepared to identify the role of parks and open spaces in the future development of Dane County. These plans are designed to be compatible with other elements of community development planning including transportation, housing, environmental protection and others. Past plans include: the Park and Open Space Plan (1970); the Short Range Open Space Program (1975); the Park, Open Space and Outdoor Recreation Plan (1983); the Parks and Open Space Plan for Dane County, Wisconsin, 1990-1995 (1990); and the Amendment to the Parks and Open Space Plan for Dane County, Wisconsin, 1990-1995 (1991).

A number of specific project plans have been prepared to guide protection of portions of the county's open space program. These plans were all first identified in a county-wide parks and open space plan. The intent of the project plans is to more specifically identify a resource to be preserved and to develop strategies to protect that resource plan. Examples of project plans include: the Nine Springs E-Way Plan (1975); the Cherokee Marsh Long Range Open Space Plan (1981); the Ice Age Trail Junction Project Plan (1993); and the Lower Mud Lake Resource Protection Project Plan (1994).

Finally, other units of government have prepared and adopted open space and/or recreation plans. For the most part, the focus of these plans is of a local nature and not intended to serve a regional population. However, the county strives, and this plan is designed, to find common areas of interest among the county, local units of government, the state of Wisconsin and private interests. The goal of these efforts is to form a true county-wide partnership in providing parks and open spaces for all of our citizens.

COUNTY MASTER PLANS

Land Use Plan (1973)

Adoption of the Dane County Land Use Plan put park and open space policies into the context of overall county development policies. The plan articulated broad objectives and detailed policies in six areas: population growth and distribution, environmental protection, regional development, public services, agricultural land, and open space.

The major open space recommendation of the land use plan was establishment of a countywide open space corridor system. Land with open space characteristics tends to be concentrated in identifiable patterns, which are most often linear because they reflect stream, drainage, steep topography and ridge patterns. The open space corridor concept uses this fact to delineate a continuous linear system whose component parts are interrelated. The Dane County Land Use Plan included a generalized corridor map, which is detailed in later plans.

Water Quality Plan (1979) and Environmental Corridors (1983)

The Water Quality Plan makes a strong connection between open space land uses and water quality benefits. In particular, the plan recommends aggressive wetland, shoreland, and floodplain protection programs. The plan recommends that water-related resource protection areas should have priority for acquisition.

Continuing water quality planning provided detailed delineation of the urban component of the countywide open space corridors network (environmental corridors). Beginning in 1983, the specific detailing of the corridors and implementation measures were developed in conjunction with local governmental units, and incorporated into local and regional plans. Detailed environmental corridor delineations have now been developed and adopted in all Dane County urban service areas.

Dane County Regional Development Guide (1985)

This document presents the adopted overall county land use policies for all development issues, including parks, open space and outdoor recreation, and environmental protection, and replaced the 1973 Land Use Plan. The relevant policies have been incorporated into the goals and policies chapter of this plan.

The Regional Development Guide continues the concept of open space corridors as the framework for open space and environmental planning for the county. The corridors have been identified as the most crucial natural resource areas and deserving of the greatest degree of environmental protection. The open space corridors include the three following components:

Rural Resource Protection Areas (shown on Dane County Regional Development Guide Map), which are continuous open space systems based primarily on streams, lakes, shorelands, floodplains and wetlands. Primary protection is through zoning, with need for acquisition in areas of distinct development threats or where public access is intended.

Urban Environmental Corridors (also shown on the Regional Development Guide Map) are the portions of open space corridors which lie within urban service areas. These are in areas subject to pressures of development and impact from adjoining land uses. They are also valuable because of the relative scarcity of natural resources and scenic beauty in urban areas. For these reasons, public ownership, control, and access are important.

Isolated Resource Features lie outside of open space corridors, but need protection because of their great scientific, scenic, cultural, social, or ecological importance.

The recommendations included in this plan build upon the open space corridor concept. Proposals for new resource protection initiatives and acquisition priorities follow the groundwork laid down in open space corridor planning.

Regional Transportation Plan for Dane County (1988)

The Regional Transportation Plan provides a coordinated, regional approach to transportation planning. The plan includes transportation plans for all modes of travel throughout Dane County. It is intended to be an overall transportation systems plan that provides goals and policies which can guide needed improvements to all modes of transportation, both in the near future as well as over a long-range period.

Dane County Greenspace Plan (1991)

The Greenspace Plan was produced by the Greenspace Committee of the Dane County Board of Supervisors and approved by the full board. The plan examines county efforts in natural resource protection, parks and trails, community separation, and urban and rural development controls. The plan makes recommendations for preserving open space in areas of urban expansion, maintaining rural open space, providing recreational open space, financing acquisitions by the county, as well as specific administrative and legislative recommendations.

PARKS AND OPEN SPACE PLANS

Park and Open Space Plan (1970)

The county's first park plan addressed long-term needs for recreational land as well as natural resources. Its policies recognized both the recreational and non-recreational functions of open space and placed a strong emphasis on environmental protection. In addition, the policies called for open space to help carry out the general development policies of the region.

With generous funding available through the federal Land and Water Conservation (LAWCON) fund and state Outdoor Recreation Act Program (ORAP), the plan recommended an ambitious acquisition program. Recommendations included 2,090 acres of new county park land, 430 acres of additions to existing parks, and 4,690 acres of resource protection acres to be acquired by various units of government.

The top priorities were: establishment of a large park on the northwest shore of Lake Mendota; a park along Lake Waubesa; a park in the Mount Vernon area; expansion to Brigham, Festge and Stewart Parks; and major resource acquisition along Sixmile Creek, Nine Springs Creek, the Yahara River and Cherokee Marsh, and Token Creek.

Short Range Open Space Program (1975)

The 1973 Dane County Land Use Plan called for a five-year action plan to place priorities on proposals first laid out in the 1970 long-range park plan. Considerable public support was indicated for open space acquisition and the Short Range Open Space Program was written in 1975 to meet that need. It recorded substantial progress made toward the acquisition goals of the long-range plan. By 1975, 63 percent of the acreage proposed for new parks and 27 percent of the acreage intended for resource protection had been acquired.

Among the resource protection projects, continued acquisition of the Nine Springs E-Way was given first priority, with an emphasis on the Dunn's Marsh area. Among the park proposals, creation of a park on Lake Mendota received top priority as a state-county cooperative effort. In addition, the short-range program called for purchase, whenever possible, of parcels contributing toward the open space corridors as outlined in the Dane County Land Use Plan.

The short-range program urged an "opportunities approach" to acquisition rather than detailed capital improvement programming. While the county and other units of government were advised to buy the highest priority sites first, buying lower priority parcels was encouraged if they became available.

Park, Open Space and Outdoor Recreation Plan (1983)

This plan included a review of the need for the acquisition of additional lands and a detailed analysis of a range of outdoor recreation activities. The plan also included a long-range acquisition plan and a short-range program.

Listed as first priority areas for resource protection were the Nine Springs E-Way corridor, the Cherokee Marsh-Yahara River, and the Sixmile-Spring Creek corridor. Included as first priority additions to existing parks were Festge and Brigham Parks. Acquisition of a regional park in the Mt. Vernon-Deer Creek area was also recommended.

Short-range recommendations included development of Badger Prairie, Indian Lake, Lake Farm, Stewart and Token Creek Parks, as well as acquisitions in the E-Way. Also recommended was the preparation of master plans for the development of McCarthy Youth and Conservation Park, Viking Park and Walking Iron Park.

Parks and Open Space Plan for Dane County, Wisconsin - 1990-1995 (1990)

This plan established priorities for acquisitions of new parks, additions to existing parks, new trails, as well as additions to existing resource areas and acquisition of new resource areas. Included within the latter category are projects within the Upper Black Earth Creek, the Door Creek wetlands, the Pheasant Branch Creek, Sixmile and Dorn Creeks, South Waubesa Marsh, and the Sugar River wetlands.

The plan was intended to guide the county's parks and open space actions during the period from 1990-1995 and to enable the county to qualify for matching funds from state and federal programs.

Amendment to the Parks and Open Space Plan for Dane County, Wisconsin, 1990-1995 (1991)

This amendment to the Parks and Open Space Plan incorporated ten recommendations for resource protection projects and trails from the Dane County Greenspace Plan. These ten projects were: (1) Blooming Grove Drumlin Area; (2) Ice Age Trail Junction Area; (3) Lower Mud Lake; (4) Sixmile Creek Area; (5) Extension of the Upper Black Earth Creek Resource Area to Cross Plains; (6) streambank easements; (7) Westport Parkway; (8) Token Creek Parkway; (9) expansion of Token Creek Park; and (10) assisting state and local governments in completing an inventory of prairies and oak savannas, and working for preservation of same.

PROJECT PLANS

Nine Springs E-Way (1972)

The Nine Springs E-Way was developed concurrently with the land use plan. It was identified as a first priority acquisition recommendation in the 1970 Park and Open Space Plan.

The project was coordinated by Philip Lewis and the UW-Madison Environmental Awareness Center staff, who obtained Madison and Dane County endorsement of the concept in 1972. An immediate goal was set to delineate at least a minimal contiguous linkage through the southern portion of the Nine Springs Creek corridor. An intergovernmental committee assisted by the Madison City Planning Department, the Dane County Regional Planning Commission, and the Dane County Parks Department prepared a detailed plan for acquisition of all lands needed to complete the Nine Springs portion of the E-Way.

Land acquired in the corridor is intended for resource protection and trail-oriented recreation. Because public access is desired, all of the area is scheduled for acquisition instead of regulatory protection.

Cherokee Marsh Long Range Open Space Plan (1981)

Like the Nine Springs E-Way, the Cherokee Marsh Plan is a detailed proposal for one portion of the county open space system. Protection of the marsh, Dane County's largest remaining wetland, has been a public concern since the 1950s. While the City of Madison, Dane County and Wisconsin Department of Natural Resources have all acquired portions of the area, coordination of long-term plans among these units of government was needed.

The City of Madison Parks Commission initiated an intergovernmental planning program in 1977 (as part of its own Park and Open Space Plan, adopted that year). A Cherokee Marsh Advisory Committee was established, representing Madison, Dane County, Wisconsin DNR, the Towns of Westport, Windsor and Burke, and coordinated by the Dane County RPC.

The Madison Parks Department staff analyzed the marsh area, and produced three types of recommendations. First, a "preservation boundary" was delineated, to identify a clear demarcation of land intended to remain as permanent open space. Second, the plan included proposals regarding public access to and use of land within the open space boundary. The recommendation called for controlled public use, providing limited facilities as needed to meet population pressures, and directing activities to those facilities. Finally, the plan made recommendations to reach the protection goals for the marsh, calling for a combination of land-use controls, easements, and fee simple acquisition. General responsibilities of each unit of government were also outlined.

In the past two decades, over 3,000 acres of land have been acquired for public use in the marsh area. The Long Range Open Space Plan proposes that 2,700 additional acres be protected in coming decades to preserve Cherokee Marsh as a major open space corridor.

Ice Age Trail Junction Project Plan (1993)

The Ice Age Trail Junction Area project was a result of a partnership between Dane County, the Wisconsin Department of Natural Resources, the Ice Age Park and Trail Foundation, and the Cities of Madison and Verona to create a Dane County link in the 1,000-mile long Ice Age National Scenic Trail which loops through Wisconsin. The project plan defines a project boundary and preliminary development plan for the Trail Junction Area between the Cities of Madison and Verona. Officials and residents from the local communities were instrumental in initiating this project.

The project plan was guided by three sets of objectives addressing recreational trail development, resource protection, and community development and identity. The total project area was 1,283 acres in size. It is not intended that all of this acreage be acquired.

Lower Mud Lake Resource Protection Project Plan (1994)

The Lower Mud Lake is a major wetland area along the Yahara River. Residents and local officials from the Town of Dunn and the Village of McFarland suggested making Lower Mud Lake a resource protection project during meetings of the Dane County Greenspace Planning Committee.

The plan consists of a project boundary and recommendations for management of land within the project boundary.

The project plan included four key objectives: (1) to create a preserve along the Yahara River and Lower Mud Lake, which has as its primary purpose the preservation and restoration of natural resources; (2) to preserve wetland, floodplain, springs and related features to protect water quality along the Yahara chain of lakes; (3) to provide and protect feeding and breeding habitat for fish, waterfowl and wildlife; and (4) to preserve archeological and historic resource sites.

RECOMMENDATIONS OF THE 1990-1995 PLAN

The 1990-1995 Parks and Open Space Plan listed acquisition needs and/or development proposals for all existing parks and trails, proposed parks and trails, existing resource protection areas, and proposed resource protection areas. In addition, these recommendations were prioritized for each of the four groups. The following is a summary of these recommendations:

A. Parks and Trails

1. Acquisitions for Existing

 

Parks and Trails	Recommended Acreage	Purpose	Accomplishment
Babcock	4	-Boat -Launch Parking	0.16 acres for frontage on Camp Leonard Road
Badger Prairie	50	-Trail connection to Elver Park -Trade with WisDOT	-See Ice Age Trail Junction Project Plan -Acquired 14 acres for addition to Badger Prairie
Cam-Rock	45	-Trail connection/historical site	Donation of 3.36 acres
Donald	500-600	-Acquire a park in the southwestern part of the county	Donation of 105 acres from the Woodburn family. Acquired 222 additional acres.
Festge	50	-Trail loop connection	Acquired 56.44 acres
Ice Age Trail		-1000 mile trail following the glacial terminal moraine across Wisconsin	Acquired right of first refusal from the Ice Age Park and Trail Foundation on four properties totalling 221.1 acres. Transfer of 160 acres from Dane County Human Services.
Indian Lake	25	-Resource protection
Stewart	40	-Resource protection and trail connection	Acquired 35.07 acres
Token Creek	80	-Resource protection and trail connection	Acquired 40 acres
Walking Iron	160	-Trail development	-Acquired 80 acres

2. Other Accomplishments

Babcock	New boat launch facility and new campground toilet and shower facility.
Brigham	Developed additional parking and play fields on land south of the park.
Capital City Trail	Plan for link of the Glacial Drumlin and Military Ridge State Trails. Construction underway.
Fish Camp Launch	Upgraded existing facilities.
Lake Farm	Developed a new shelter house. Initiated fund raising and planning for the Heritage Center.
McCarthy Youth and Conservation Park	Completed a master plan for this park.

The Parks Department is in the process of ensuring that all county park facilities meet the requirements of the Americans With Disabilities Act (ADA).

B. Resource Protection Areas

                           

Resource Area	Stated Need	Accomplishment
Cherokee Marsh	398 additional acres	-127.3 acres acquired
Ice Age Trail Junction Area	-Develop a route for the Ice Age Trail in the Madison-Verona area -Connecting recreational trails between Elver and Badger Prairie	-Acquired 269 acres
Lower Mud Lake	1,500 acres wetland area between Lakes Waubesa and Kegonsa	-Project plan completed in 1993.
Nine Springs E-Way	946 additional acres	Donated easement from MMSD, 10.5 acres. Acquired approximately 66 acres; 13.7 acres under contract. Initiation of Capital City Trail through portion of the E-Way.
Pheasant Branch Creek		Acquired the Frederick property, 160 acres.
Streambank Easements		Acquired an easement right-of-enforcement along Token Creek, 1.8 acres.

GOALS AND POLICIES

A. Overall Goals

The Parks and Open Space Plan has four main goals:

1. Preserve key natural resources of the county in permanent open space.

2. Provide sufficient parks and recreation areas to meet the needs of the people of Dane County.

3. Preserve for posterity the nature and diversity of the natural and cultural heritage of Dane County.

4. Use open space to achieve separation of communities and help guide urban growth when the land is appropriate for park purposes.

B. Policies for Natural Resource Protection

1. Continue preservation of the physical and biological resources within the countywide open space corridor system as adopted in the Regional Development Guide.

2. Support the detailed delineation and implementation of the system of environmental corridors within urban service areas.

3. Protect natural resources and linkages outside the open space corridors such as scientific areas, glacial features, and other isolated, environmentally sensitive areas.

4. Emphasize continued implementation of the Nine Springs E-Way and Cherokee Marsh Long Range Plans.

5. Include any additional green space preservation plans that are adopted by Dane County.

6. Acquire and preserve wetlands and the adjacent uplands and shoreline along lakes, streams, creeks, their headwaters and springs, as well as woodland areas and areas of significant topography.

7. Assist in implementing the Dane County Water Quality Plan.

8. Allow for only low-impact recreational uses of natural resource protection areas.

9. Plan and implement the restoration of upland prairies, woodlands and wetlands.

10. Facilitate and participate in linking public lands and trails of various political jurisdictions to communities and population centers to amplify the availability and recreational use of these lands.

11. Provide access to lakes and streams and water-based recreation trails. These water-based trails would be designed for use by canoes, kayaks, and similar watercraft.

C. Policies for Parks and Recreation

1. Provide recreational opportunities that are consistent with the county's role in the overall system of parks for the region.

• The state provides regionally significant parks and open spaces.
• The county provides intermediate, recreational resource-based parks that serve a regional population.
• Cities, villages and towns provide parks and playgrounds to meet local community needs, including intensive recreational uses.

2. Priority in siting parks should be given to areas which:

• provide prime environmental and recreational based qualities
• provide for year-round multiple uses, particularly trail-oriented activities
• are close to large concentrations of people
• are likely to be otherwise lost through urbanization and development
• are in delineated open space corridors to provide for high- demand, trail-oriented activities

3. Priorities for facilities and improvements should be given to:

• minimal development to control maintenance and operation costs and preserve the natural value of the land
• trail-oriented activities
• trails and recreational activities for people with disabilities
• picnic areas, recreation equipment and toilet facilities equipped for people with disabilities
• activities which fulfill present and projected demands for recreation where these have been quantified

4. The development of any motorized off-road vehicle park facilities other than for snowmobiles shall require the prior concurrent approval of the affected local governments and the County Board.

5. The county may provide mountain biking trails if a suitable site can be found which will prevent environmental damage and avoid conflict with other users.

6. The county should consider a role in the recreational activities of golf and baseball as part of the recreational and open space needs of the county.

7. The Park Commission should study lands under its jurisdiction for the purpose of evaluating controlled hunting as outlined by Ordinance Amendment.

8. The Park Commission should examine the feasibility of providing additional trails for equestrian use both within existing parks as well as providing connections to trails outside of parks.

9. Explore the possibility of assisting private non-profit sport and recreation organizations. An example would be assisting private non-profit soccer organizations in their efforts to develop additional soccer facilities.

10. The county may charge fees in order to provide funding for operations, land acquisition and development of the county park system.

D. Policies for Cultural and Historic Resources

1. Acquire areas to protect the historic, aesthetic, and cultural heritage of Dane County.

2. Plan for the greatest protection and appreciation of the resources of each site, including archaeological studies prior to development of park land.

3. Interpret the significance of sites to add greater interest, preserve area history, and educate visitors about the significance of various sites.

4. Require the preservation of Indian mounds on public and private lands.

5. Consider acquisition of sites which can be included in existing parks and resource areas.

6. Support planning efforts aimed at preserving Indian mounds, as well as other cultural artifacts of Native Americans and later settlers, including:

• identification and classification of mounds and historic sites in accordance with the Dane County Ordinance
• assist in preparing a cultural overview for Dane County
• assist in updating a specific cultural context for the Dane County archaeological region
• assist in developing and implementing a cultural resource management plan for the county

E. Policies for Urban Green Spaces

1. Implement the policies of Dane County Regional Development Guide with regard to preserving a countywide system of open space corridors.

2. Achieve separation of communities to preserve individual community identities.

3. Cooperate with other units of government in establishing a permanent network of open space around the central urban area of the county.

4. Implement other green space initiatives which are assigned to the Park Commission by the County Board.

5. Encourage the establishment of local municipal programs such as Trees U.S.A. and urban forestry efforts.

F. Policies for Implementation

1. Develop a full range of programs for the preservation of open space corridors, including: purchase, dedication, zoning, acquisition of easements and other rights, and other equitable means.

2. Encourage greater state and federal allocation of financial resources for parks and open space to metropolitan areas such as Dane County.

3. Encourage greater private sector participation in the preservation of park and open space lands.

4. Seek new and innovative methods of using private sources of funding such as land donation, donation of easements and other rights, labor donation, and in-kind goods and services.

5. Develop a policy that ensures adequate compensation to the county when granting exclusive use of county park and resource lands to non-county agencies, groups or individuals, or granting easements or other permanent rights to park and resource lands.

6. Maintain a volunteer program which identifies tasks for volunteers and provides supervision, support, and recognition.

7. Relinquishment of county-owned park land for purposes other than preservation or recreation shall be dependent upon:

• the long-term impacts on park and recreational use throughout Dane County
• an equal exchange of land
• dedication of revenues to additional park lands or improvements
• action being consistent with local and regional plans
• determination that the land is not needed for county park and open space purposes, both at the present and in the future
• consideration of the total costs and benefits of ownership of the land
• protective deed restrictions placed on title of property

8. Donations of land to the county parks system should be evaluated in terms of:

• consistency with needs identified in the Parks and Open Space Plan
• proximity to existing parks
• maintenance and development costs
• any special environmental or cultural qualities
• allowing the county to accept land donations for resale with the proceeds used for purchasing other park and resource land

9. The county cooperates with private groups and with all other units of government in financing and in sharing management of recreation resources where appropriate.

10. The county should pursue assuming responsibility for areas and facilities that are regional in nature and consider turning over to local governments those parks and facilities which serve only local needs and which do not meet county standards. Lands which are turned over shall be kept as parks open to all and not changed in use to the detriment of the land or the public interest.

11. The county endorses the projects of other units of government which meet regional objectives and provide regional use. Examples include community parks over 100 acres in size, the UW Arboretum and special facilities such as Olbrich Botanical Gardens and the Elver Park lighted ski trails.

12. The county should prepare project plans and goals for specific parks or resource areas prior to acquisition.

13. The Regional Transportation Plan for Dane County should plan for safe trail crossings across county roads and highways as well as reduce the impact of transportation corridors on county park and open space areas.

14. The county encourages local municipalities to provide for the park and recreational needs of the citizens of unincorporated communities within their boundaries. These traditional population centers may be lacking in recreational opportunities and the towns in which they are located often are unable to fully meet their needs. The towns may assist in implementing Dane County's plan by coordinating their plans with Dane County's plan, and enhance the value of the parks, open space and recreational facilities of both the towns and the county.

G. Policies for the Role of the Private Sector

The private sector, both non-profit conservation groups and for-profit companies, can assist Dane County in its efforts to acquire and manage its parks and open spaces. In its partnership with the private sector, the county should:

• cooperate with private groups and with all other units of government in acquiring land and in sharing management of parks and resource areas.
• expand support systems, such as the Adult Conservation Team or friends groups, for all county park and recreational facilities. These groups will assist in management of these facilities.
• expand adopt-a-use groups, similar to adopt-a-park groups, to help maintain or develop specific facilities. Examples of successful partnerships have included cross-country ski groups, fishing enthusiasts, mountain bike riders and dog owners.
• consider corporate sponsorship of county park and recreation facilities.
• form partnerships with private non-profit groups in acquiring properties of mutual interest. The state Stewardship Fund will provide matching funds to private, non-profit conservation groups for the acquisition of land for: urban green spaces; habitat restoration; streambank easements; state trails; natural areas; and the natural heritage program.

H. Policy for Removing Lands from Tax Rolls

All of Dane County's citizens benefit when the county acquires lands for recreational use and resource protection. Providing for public amenities could enhance the value of an area to those who live there and use the public lands and facilities. There is a concern, however, that the local municipalities in which these lands are located face a disproportionate burden because these lands are removed from the tax rolls and because the local unit of government is responsible for maintaining roads leading to these areas. Studies have shown that removing lands from the tax base usually produces little or no change in overall tax rates, primarily because the state's school aid formula will offset most of the school tax revenue lost. Impacts on infrastructure vary depending upon the park or resource area, the level of traffic generated by the park or resource area compared to the overall traffic levels, and other factors.

The Dane County Parks Department will research the tax impacts of removing lands from the tax rolls as well as potentially making payments in lieu of property taxes. Recommendations will be forwarded to the Park Commission and the County Board.

NEEDS ANALYSIS

In planning for future park and open space acquisitions and capital improvements, the demand for specific types of recreational activities must be gauged. This demand is determined in different ways, depending upon the type of recreational activity. This plan uses three separate approaches to determining the needs of parks and open space users: demand based approach; resource based approach; and a standards approach.

The demands based approach is based on the assumption that the demand for recreational facilities can be determined by studying what recreational activities people participate in and what types of facilities they would like to see provided in the future. The Dane County Parks Department conducted a survey of Dane County residents to determine their participation in various recreational activities and to ask them what types of facilities the county should provide for future recreational participation. The survey also asked what the role of the Dane County Park Commission should be in terms of acquiring recreational park land, resource areas or trail connections. The results of this survey were used to formulate the recommendations found in this plan.

The most frequently mentioned recreational activities in terms of participation rates (more than 10 times per year) were playground use, hiking, baseball or softball, picnicking, golfing and bicycling on a trail. Similarly, respondents most favored facility improvements for playgrounds, bike trails, hiking trails, baseball or softball fields, pet exercise areas and picnic facilities.

Other results of the survey indicated that the top ten facilities recommended for improvement or expansion were: playground facilities, bike trails, hiking trails, baseball or softball fields, pet exercise areas, picnic facilities, sledding areas, campgrounds, mountain bike trails, and public boat launch facilities.

Over 80% of respondents felt the protection of natural resource areas was a very important part of the county's park and open space program. Approximately two-thirds of the respondents also favored an increase in taxes to preserve natural and cultural resource areas, such as prairies, woodlands and wetlands. In addition, approximately nine out of ten respondents indicated that they were either satisfied or very satisfied with the Dane County parks system.

The resource based approach entails identifying specific areas in which parks and resource areas would be appropriate, based upon physical and natural resources. A number of these areas were previously identified in the 1990-1995 Parks and Open Space Plan, as well as the Amendment to the Parks and Open Space Plan, and these recommendations are brought forward to this plan. These areas were identified because of their unique resource values and their importance to the citizens of Dane County. The 1996-2000 plan also identifies areas for resource protection, including a recommendation to cooperate with The Nature Conservancy in funding the acquisition and preservation of prairies and oak savannas where these areas coincide with other objectives of the Parks and Open Space Plan.

The third approach to determining demand for recreational activities is the standards approach. This is the traditional method of determining demand used by most parks departments across the country in which the quantity of facilities provided is correlated to the population served. These standards are usually those compiled by the National Recreation and Park Association.

There are drawbacks, however, in utilizing these standards. The first is that the standards developed by NRPA are most useful in determining the service area for active recreational park facilities. For instance, the 1996 Park, Recreation, Open Space and Greenway Guidelines recommends that a neighborhood park have a service area of ¼ to ½ mile. The county's parks, and especially its resource protection areas, serve a more regional clientele and are not intended to provide active recreational use.

The second drawback to adopting a general acreage standard is that it is, necessarily, an arbitrary figure. Dane County first adopted a standard of 15 acres of recreational land per 1,000 people in the Dane County Plan for Parks and Open Spaces (1970). Every subsequent county parks plan has used this standard as a way to measure the progress of Dane County in providing recreational lands.

In looking at both park and resource area acquisitions since the adoption of the 1970 plan, Dane County has made progress in approaching the 15 acres per 1,000 person standard.

The following chart shows the acquisition activity of both parks and resource areas by Dane County and the ratio of acreage provided per 1,000 persons for each year in which a county parks plan was prepared (1970, 1975, 1983, 1990 and 1995).

PARKS AND OPEN SPACE NEEDS — DANE COUNTY

	1970	1975	1983	1990	1995
Population	290,272	305,532	333,950	367,085	393,857
Acres Needed	4,354	4,583	5,009	5,506	5,908
Actual acres acquired	724	2,000	2,958	3,625	5,230
Deficiency	(3,630)	(2,583)	(2,051)	(1,881)	(678)
Ratio*	2.5/1,000	6.5/1,000	8.9/1,000	9.9/1,000	13.3/1,000

*Acres per 1,000 persons

  However, it must be noted that only a portion of the resource areas are intended for even passive recreational use and that some of the parks contain extensive amounts of resource lands. The following chart indicates the total amount of recreational park land owned by the county for each of the plan years listed above. The ratio of acreage provided per 1,000 persons is a more precise measurement of the efforts of Dane County in providing lands for active recreational use.   

PARKS NEEDS — DANE COUNTY

 

	1970	1975	1983	1990	1995
Population	290,272	305,532	333,950	367,085	393,857
Acres Needed	4,354	4,583	5,009	5,506	5,908
Actual acres acquired	644	1,900	2,725	2,796	3,338
Deficiency	(3,710)	(2,683)	(2,284)	(1,710)	(2,570)
Ratio*	2.2/1,000	6.2/1,000	8.2/1,000	7.6/1,000	8.5/1,000

^*Acres per 1,000 persons

 

1996-2000 PARKS AND OPEN SPACE PLAN RECOMMENDATIONS

A. PARKS

A recreational park is defined as a facility which emphasizes active recreational use. Examples of the types of uses provided include park shelters for picnics, play areas and boat launch sites. Many of Dane County's recreational parks, such as Token Creek, do however contain significant amounts of resource areas within their boundaries.

The plan recommends additions to eight existing parks as well as numerous capital improvements and Americans with Disabilities Act (ADA) projects. No new parks are planned.

Babcock - 40 Acres (Town of Dunn, Village of McFarland)

This park is located on the east side of Lake Waubesa where the Yahara River flows from the lake. Although it is 40 acres in size, only 26 areas are developed with recreational facilities. Included are a small shelter facility, 25-unit campground with electrical hookups and trailer dumping station, a boat launch with a fish cleaning facility, and a boat mooring lagoon.

Recommendations. Resurface one playground and retrofit play equipment to meet ADA standards in 1997.

Badger Prairie - 339 Acres (Town of Verona)

The park, located just east of the City of Verona, is one of Dane County's largest. The park provides parking and access to one end of the Military Ridge State Trail, and to a segment of the national Ice Age hiking trail. A hill within the park offers a splendid view of surrounding areas. The park has shelter facilities, softball fields, play equipment and mountain bike trail. The entrance to the park is at the intersection of CTH PB and USH 151.

Recommendations. Complete the trail connector between Badger Prairie Park and the City of Madison's Elver Park as part of the Ice Age Trail Junction Area. Construct a separate toilet and shelter complex to meet the increased demand for shelter reservations. The project is expected to be completed in 1998. Provide toilet and shelter modifications to meet ADA standards in 1998.

Brigham - 112 Acres (Town of Blue Mounds)

This 112-acre park, with a panoramic view toward the Wisconsin River Valley, is just northeast of the Village of Blue Mounds on County Highway F. Named after Ebenezer Brigham, one of the first white settlers in this area, the park offers both the cultural and natural heritage of Dane County. Facilities include two shelter houses, picnic areas, a self-guiding nature trail, play equipment, a 25-unit campground and group camp area.

Recommendations. A parking lot is to be constructed in 1996 and a playfield in 1997. Resurface one playground and retrofit play equipment in 1997 to meet ADA standards. Modify two campsites with area tables to be fully accessible in 1998.

Cam-Rock - 303 Acres (Town of Christiana)

The 303-acre park site was purchased through the initial efforts of the Cambridge Foundation and Dane County Park Commission. Cam-Rock Park is located in eastern Dane County along two miles of Koshkonong Creek between the Village of Cambridge and the Village of Rockdale. At the present time, facilities include three shelter houses, picnic areas, play equipment, a softball field, bike and nature trail, canoe launch, group camp area, sledding-toboggan hill, and cross-country ski trails.

Recommendations. Provide restroom modifications at Shelters 1 and 2 and provide accessible routes to Shelters 1 and 2 in 1996. Resurface three playgrounds and retrofit play equipment in 1997. Modify two toilet areas in Shelter 3 in 1998.

Construct a bridge across the Koshkonong Creek connecting an existing trail from Shelter 1 to Shelter 3. It will be necessary to obtain property for the bridge crossing and trail extension. This trail will be 8 to 10 feet wide for hiking, biking and skiing. The bridge might be shared by snowmobiles in the winter. The trail will also connect the Villages of Cambridge and Rockdale. This project is scheduled for completion in 2001.

Cooperate with state and other governmental agencies for the improvement of Koshkonong Creek over the next several decades. The Rockdale Dam should be considered in that cooperative improvement program.

Donald - 327 Acres (Town of Springdale)

Donald Park is located along Mt. Vernon Creek near the hamlet of Mt. Vernon. The original donation of 100 acres came from the Woodburn family in 1993 and 227 acres have been subsequently acquired.

Recommendations. Acquire an additional 100 to 300 acres to create a regional park totaling 400 to 600 acres. Planning for the development of this park will progress as additional acreage is acquired and added. A series of trails, as well as a coordinated equestrian trail system, is anticipated. Development of Donald Park is proposed to be completed by 2005.

Festge - 126 Acres (Town of Berry)

Festge Park, located in the driftless area, provides a commanding view of the Black Earth Creek Valley. This 126-acre park contains a mature stand of hickory, oak, and cedar woods with some exceptional burr oaks on the edges. Salmo Pond and land adjacent to Black Earth Creek, approximately six acres in size, are an extension of Festge Park. Recreational facilities include three shelter houses, stone fireplaces, picnic areas, play equipment, nature trails, softball field and group camp areas. The entrance to the park is located on Scherbel Road one and one-half miles west of the Village of Cross Plains on USH 14.

Recommendations. Acquisition of a trail connector between Festge and Indian Lake County Parks as part of the Ice Age Trail. Cooperate with the Village of Cross Plains and the Department of Natural Resources to implement that connection and a possible connection to Cross Plains.

Fish Camp Launch - 19 Acres (Town of Dunn)

The park is located at the end of Fish Camp Road off CTH B, approximately one mile northeast of intersection USH 51 and CTH AB. Fish Camp Launch is a 10-acre site located on the north end of Lake Kegonsa at the inlet of the Yahara River. It offers one of the best boat launching sites on Lake Kegonsa with its protected launching area and large car-trailer parking lot.

Recommendations. Acquisition of a land-based trail between Fish Camp Launch and Lake Kegonsa State Park.

Fish Lake - 3 Acres (Town of Roxbury)

The park can be reached via USH 12, north to CTH KP, right onto CTH Y, left on Mack Road and right on Fish Lake Road. It is located on the west side of Fish Lake in the far northwestern corner of Dane County. Recreational facilities at this 3-acre site include a shelter house, play equipment, picnic areas and boat launch. The lake itself is 252 acres in size with a depth of 62 feet and is reported to contain northern pike, large-mouth bass and pan fish. Boats with motors are prohibited.

Recommendations. One proposal for this park is to expand it to 300 to 500 acres surrounding Fish Lake. This would be accomplished through a partnership with DNR. Also recommended would be a partnership with some group to manage a campground at this site. An alternative option is to turn over the existing four-acre park to the town or other local group.

Change the pathways to the shelter and restrooms, providing new gravel and modifying the slope. These ADA improvements are scheduled for 1996. Complete ADA required improvements in 1998.

Goodland Park - 15 Acres (Town of Dunn)

Located on the west shore of Lake Waubesa, Goodland is a partially wooded park containing 600 feet of shoreline. Since the 15-acre park is situated near large urban populations, the demand for the use of its recreational facilities is great. The park offers two shelter houses, picnic areas, tennis, basketball and volleyball courts, softball field, play equipment, an unsupervised swimming beach and a boat launch.

Recommendations. Emphasis should be placed on maintenance of existing facilities and long-range planned improvements relating to parking, shelter facilities and play areas. Consider transfer of this park to a local unit of government or other governmental agency or a private non-profit organization. Modify access routes to Shelters 1 & 2, restrooms, and playgrounds to meet ADA standards.

Halfway Prairie School - .75 Acre (Town of Mazomanie)

On this three-quarter acre site is located the oldest existing rural elementary school in Dane County. The one-room school was operated from 1844 until it closed as a result of consolidation in 1961. Visitors may view the inside of the school in its original restored condition on holidays and Sunday afternoons, 1:00 to 5:00 p.m., from Memorial Day through Labor Day. Halfway Prairie School is located at the junction of CTH F and STH 19, two and one-half miles north of the Village of Black Earth.

Recommendations. An emphasis should be placed on on-site maintenance. Consider transfer of this park to a local unit of government or other governmental agency or a private non-profit organization.

Indian Lake Park - 442 Acres (Town of Berry)

Indian Lake Park is one of Dane County's largest. The park has outstanding natural and historic resources. A winding trail leads to a historic chapel built in 1857 on a hilltop which commands a beautiful view of the lake and surrounding valley. Miles of cross-country ski and natural trails in the wooded hills provide, among other recreational opportunities, access to a log cabin warming house. A launch for small, non-motorized boats is located off STH 19 and a trail has been developed around the entire lake including 900 feet of elevated boardwalk which meanders along the shallow end of the lake.

Recommendations. Add approximately 300 to 350 acres to this park. Lands are needed to buffer the lake, especially on the north shore. Also included in this recommendation are wetlands to the east, which are the headwaters of Indian Lake, and the wooded areas to the south. The land northeast of the existing park containing much of the wetland and springs draining into Indian Lake should be acquired or protected. Acquire a trail connector between Indian Lake and Festge Parks as part of the Ice Age Trail.

In 1998, extend the access road to the cabin and develop an informational display for the chapel. Construct a year-round shelter and toilet building in 1999. This shelter facility would provide an enclosed warming facility in the winter and a fee collection location.

LaFollette - 34.75 Acres (Town of Pleasant Springs)

This 35-acre park is a narrow strip of land along the eastern shore of Lake Kegonsa adjacent to Kegonsa State Park. A high voltage line and a railroad traverse the park. Recreational facilities include a shelter house, picnic area, and play equipment. The unsupervised swimming area on the east side of the railroad tracks is not part of the park. The land is low and during the rainy season tends to be very wet. The land is not attractive for intensive recreation, and its potential usefulness is extremely limited, especially since it is adjacent to a large and well-planned state park.

Recommendations. Consider transfer of this park to a local unit of government or other governmental agency or a private non-profit organization. The locks and dam should remain in county ownership. Resurface access routes. Modify the restrooms to meet ADA standards. This project is targeted for 1998.

Lake Farm - 328 Acres (City of Madison, Town of Blooming Grove)

Lake Farm Park is located on the northwest shore of Lake Waubesa. At the present time the 328 acre park is under improvement. Recreational facilities currently available include three shelter houses, a boat launch, an overlook tower, group camp area, wildlife pond, nature and interpretive trails, and ski trails.

Recommendations. Construct the Heritage Center by 1998; funding to be through a separate capital campaign. The mission of the Heritage Center is to interpret the human and environmental heritage of Lake Farm Park, the Nine Springs E-Way and the surrounding region. There will be special emphasis on the early Native American settlement of Lake Farm Park and the environmental importance of the Nine Springs E-Way.

Construct a campground consisting of a minimum of 55 campsites, that could be expanded to up to 100 sites. There will be a flush toilet and shower building which will be winterized and the campground will provide winter camping opportunities. This project is estimated to be completed in 1998.

Development plans for the next five years could also include a canoe launch and a swimming beach and bath house.

Lower drinking fountains to provide ADA access near Shelter Houses 1, 2 and 3 and near the boat launch; modify the playground. Both projects are scheduled for 1996. Modify the pier to provide ADA access at Shelter 2 in 1998.

McCarthy Youth and Conservation Park - 180 Acres (Town of Sun Prairie)

This park is a proposed recreational conservancy park for the young people of Dane County. Eventual construction could include a shelter, group camping areas, a day camp, hiking and nature trails, council rings,and activity areas. The 180-acre parcel is located approximately six miles east of the City of Madison on CTH TT.

Recommendations. Acquire additional lands for the expansion of this park. Implement the recommendations of the master plan for McCarthy Park.

Develop the main entrance road, parking facilities and play area. Initial development will include some tree planting, prairie restoration, trail construction, fencing and play area development. This project is scheduled for completion in 2000.

Mendota - 20 Acres (Town of Westport)

This 20-acre park with approximately 300 feet of lake frontage is located on the northwest shore of Lake Mendota. Due to its close proximity to the City of Middleton, the recreational facilities receive very intense usage. Facilities include three shelter houses, picnic areas, unsupervised swimming beach and canoe launch area, tennis and basketball courts, softball field, boat mooring lagoon and a 30-unit campground with showers, electricity, and trailer dumping station.

Recommendations. Consider transfer of this park to a local unit of government or other governmental agency or a private non-profit organization. This park is heavily used and the issue of camping at this park will be resolved as camping areas are developed at other county parks.

Lower drinking fountains and provide access to Shelter House 3 and a path to the lagoon to meet ADA standards. These projects are scheduled for 1996. Modify existing restroom facilities in 1997 and modify the playground in 1998.

Riley-Deppe - 33.5 Acres (Town of Medina)

Riley-Deppe Park is 34 acres in size and is located just west of the Village of Marshall on STH 19. The park fronts on a mill pond formed by the impoundment of the Maunesha River. Some fishing is done along the shore. Facilities include one shelter house, picnic area, play equipment, and boat launch.

Recommendations. Consider transfer of this park to a local unit of government or other governmental agency or a private non-profit organization. Modify the restrooms in Shelter House 1, complete modifications to playsite and provide access to playground equipment, and improve access to Shelter House 1. These ADA improvements are scheduled for 1997.

Stewart - 161 Acres (Town of Blue Mounds)

Stewart Park is a 161-acre site located north of the Village of Mount Horeb. It includes a 7-acre, spring-fed lake that offers a challenge to the trout fisherman. The park is known for its scenic beauty and quiet surroundings. Recreation facilities include two shelter houses, pavilion, a picnic area, play equipment, group camp area, and cross-country ski trails.

Recommendations. Implement the recommendations of the Stewart Lake Restoration and Watershed Plan (Dane County Regional Planning Commission), adopted by the County Board in 1996. Work with the state and the village in constructing stormwater retention basins and eventually dredging Stewart Lake. Acquire lands north of the park to improve access from Highway 78 and south to link with Mt. Horeb's village park.

Resurface one playground and retrofit play equipment to meet ADA standards. Improve the access to shelter Houses 1, 2 and 3 and add accessible drinking fountains. These projects are scheduled for 1997.

Token Creek - 427 Acres (Town of Burke)

This 427-acre park is located northeast of the City of Madison adjacent to I-90 and is well known for its shelter facilities and ample open spaces for large group picnics and outings. Although not fully developed, the park offers a variety of recreational facilities including five shelter houses, picnic areas, softball fields, play equipment, 38-unit campground with showers and electricity, trailer dumping station, group camp area, snowmobile and nature trails, cross-country ski trails and a dog exercise area. Many of the facilities are accessible to the handicapped. Examples are paved pathways, campsites, and a specially designed boardwalk through a marsh.

Recommendations. Land northeast of the park along Token Creek should be acquired or protected. A connector between the City of Sun Prairie and Token Creek Park should be pursued over the next several years through a cooperative effort by Dane County and the City of Sun Prairie. Explore the feasibility of extending the equestrian trails within the park south to McCarthy Park and potentially to the Village of Cottage Grove.

Modify restrooms in the information building, group camping building, and in shelters 3, 4, and 5. These projects are scheduled for 1998. Land may be added to the park in conjunction with the Dane County Regional Airport noise reduction program.

Viking Park - 100 Acres (Town of Dunkirk, Town of Pleasant Springs)

Viking Park is located on the Yahara River north of Stoughton on CTH N. The 100-acre park is undeveloped; however, it is currently used for fishing, picnicking during the summer, and as a dog exercise area.

Recommendations. Enter into a partnership with the City of Stoughton and the Town of Pleasant Springs to acquire a property that would connect Stoughton to Viking Park across the Yahara River. This connection would allow an urban pedestrian river trail to go through Viking Park.

Provide access to shelter house by slope changes and gate-space modifications. Scheduled completion date is 1997. Construct a unisex accessible portable toilet facility in 1998.

Walking Iron Park - 320 Acres (Town of Mazomanie)

Walking Iron Park is in northwestern Dane County adjacent to the Village of Mazomanie. The northwestern portion of this park's 240 acres contains a native sand prairie and nature trail along Marsh Creek. Black Earth Creek flows through the southeastern portion of the park and contains an access road and parking area for the village park.

Recommendations. Acquire an additional 80 acres to the northeast for resource protection, trail recreation and to establish a more substantial tie between the two existing portions of the park. Possible recreational facilities over the next five years could include a group camping area with shelter and sanitary facilities and additional nature, hiking and cross-country ski trails. Coordinate with the Village of Mazomanie in the planning for this park and the Village's Lions Park as well as for future acquisitions.

B. RESOURCE AREAS

The county's resource areas provide more passive recreational opportunities, such as hiking and biking, and emphasize the protection of the specific resource. Public access to these areas is often limited to defined trails. Some of the county's resource areas do include land uses that aren't considered a natural resource, such as a cornfield, but may be vegetatively restored to a natural habitat. Recommendations include additions to existing resource areas, as well as the preparation of project plans and acquisitions of new resource areas.

The plan includes existing resource areas in which a project plan has been prepared and/or acquisitions have occurred, as well as proposed resource areas. The proposed resource areas are generalized study areas. Subsequently, project plans are prepared that identify the specific resources to be protected and establish boundaries for acquisition efforts.

Existing Resource Areas

Cherokee Marsh

The Cherokee Marsh Long Range Open Space Plan outlines joint responsibilities for the City of Madison, Dane County and the State of Wisconsin to acquire and protect land within the planning area. The County Parks Commission has an area of responsibility along the marsh encompassing 850 acres. At present, county ownership consists of the Yahara Heights Park at 192 acres and Token Creek Park at 427 acres. Therefore, there is a need for 231 more acres of land acquisition and protection by the county in the Cherokee Marsh.

Holtzman

This 64-acre area in the Town of Dunn was donated to Dane County as a nature preserve. Access can only be obtained by receiving permission from one of the surrounding private landowners.

Recommendations. Acquisition of a small addition for public access and parking.

Ice Age Trail Junction

This project area is approximately 1,300 acres in size and is located within the Town of Verona. A project plan for this area was adopted by the County Board on November 4, 1993. This area will complement the existing public acquisitions and plans for the Ice Age Trail, provide a trail link between Madison, Verona and the Military Ridge State Trail and provide an area of community separation between the two cities. Approximately 269 acres have been acquired so far in this area.

Recommendations. Development of the Ice Age Trail Junction Area is scheduled for completion in 2007.

Lake View Woods

This area is 27 acres in size and is located on Northport Drive in the City of Madison.

Recommendations. Resurface and construct access routes in 1998. Consider transfer of this resource area to a local unit of government or other governmental agency or a private non-profit organization.

Lower Mud Lake

Located in the Town of Dunn, this project area is 1,700 acres in size and includes wetlands between Lakes Waubesa and Kegonsa. A project plan for this area was adopted by the County Board on February 17, 1994. Approximately 226 acres have been acquired in this area.

Nine Springs E-Way

The E-Way Corridor extends from Dunn's Marsh near Seminole Highway east to Lake Farm Park on Lake Waubesa. Land within the corridor is held by a number of public jurisdictions. The total planning area for the E-Way includes 3,593 acres, of which approximately 2,689 acres are in public ownership. Dane County has acquired 640 acres of land within the E-Way.

Recommendations. Complete all land acquisitions. Modify toilet sites, reconstruct new toilet facility in 1998.

Pheasant Branch Creek (Frederick Property)

This 160-acre site, adjacent to the Pheasant Branch Creek Conservancy, contains numerous springs, remnant oak savannas and is a major supplier of water to Lake Mendota.

Phil's Woods

This 37-acre area located in the Town of Roxbury is named for Philip LaFollette, three-time governor of Wisconsin. The undisturbed site contains natural woods and meadows with intact flora and fauna populations and offers a view of the Baraboo Bluffs and Sauk Prairie area.

Recommendations. Consider transfer of this resource area to a local unit of government or other governmental agency or a private non-profit organization. Construct a small parking lot.

Schumacher Farm

This 37.5-acres site in the Town of Westport was donated to the public for development of a prairie and open air museum. Future plans include demonstrations of farming practices of the early 1900s.

Recommendations. Long-range plans include prairie restoration and nature trail construction. Acquire additional lands. Extend the formalized agreement which was established in 1995 with the Friends of Schumacher Farm.

Upper Black Earth Creek Area

Approximately 79 acres have been acquired in the Town of Middleton.

Recommendations. Prepare a project plan for this study area which extends from the City of Middleton across the Towns of Middleton and Cross Plains and on to the Village of Cross Plains. It includes features of ridgetops, steep slopes, floodplains and wetlands.

Proposed Resource Areas

Badger Mill Creek Resource Area

This proposal recommends the wetlands and adjacent uplands along Badger Mill Creek be protected from Badger Prairie Park south to the confluence of the Sugar River. Estimated acreage for this area is approximately 300 acres.

Blooming Grove Drumlin Area

This proposed resource area is located in the Town of Blooming Grove and its study area is approximately 700 acres in size. It includes a number of drumlins and adjacent wetlands along the Door Creek drainage system.

Door Creek Wetlands

Located in the Towns of Dunn and Pleasant Springs, this study area is approximately 700 acres in size. The marsh within this area rests on one of the major peat deposits of the Yahara River System.

Pleasure Valley Resource Area

This area is located in western Dane County within Blue Mounds and Vermont townships north of Brigham Park. This wooded and oak savannah valley stretches from CTH F on the east to Blue Mound State Park on the west. The area comprises approximately 700 to 1,000 acres. The DNR has also included this area in its draft Five-Year Land Acquisition Plan. The County would form a partnership with DNR to acquire conservation easements. The DNR would be the lead agency in this resource protection effort.

Sixmile Creek Area

This study area is approximately 400 acres in size and is located in the Town of Westport. It contains primarily wetland areas, with some associated upland areas and serves as a protection area in the Lake Mendota Watershed.

South Waubesa Marsh

This study area is located within the Town of Dunn and contains approximately 700 acres. This marsh is a deep peat deposit with major springs and seepages contributing water to Lake Waubesa.

Sugar River Wetlands

Located within the Town of Verona, this study area is approximately 640 acres in size and is one of the largest wetlands along the border of the driftless area in western Dane County.

Prairie and Oak Savanna Sites

The amended Parks and Open Space Plan for Dane County, 1990-1995, recommended that the county: support and assist in completing an inventory of prairie and oak savanna sites; notify landowners and local governments of site locations; and consider these sites during urban service area, rezoning and subdivision decisions.

Subsequent to the adoption of that plan, The Nature Conservancy has initiated the Wisconsin Prairie and Oak Savanna Initiative. This initiative is a cooperative project to enlist the support of individuals, private landowners, conservation and civic organizations and all levels of government. The goal is to protect the best of the remaining prairie and savanna remnants and, where possible, to restore some examples of the early prairie landscape.

Dane County's role in this initiative will be to cooperate with the Nature Conservancy in funding the acquisition and preservation of those areas that coincide with other objectives of the Parks and Open Space Plan. These objectives relate to the parks, resource areas, project areas and trailways recommended in this plan.

The map on page 59 outlines the seven "best" potential grassland/prairie landscape-scale management areas, as well as the top 23 locations for native prairie remnants and oak savannas in Dane County. These areas and their rankings have been compiled by the Southwest Wisconsin Prairie Enthusiasts. These are study areas only and are not to be considered defined project areas.

C. TRAILS

A major emphasis of this plan is the recommendation of new trails to connect existing and proposed parks and resource areas (see map on p. 53). Approximately 40% of survey respondents indicated they hiked at least six times in the last year, and about one-third stated they biked on a trail at least six times in the last year. This goal can be accomplished through cooperative efforts of local municipalities, the state and private groups.

This plan, also, for the first time, includes recommendations for water-based trails. Dane County can boast of an abundance of creeks, streams and rivers. Past efforts by the county have focused on preserving and protecting the natural functions of these watercourses as well as their associated wetlands. This plan also recognizes the recreational value of some of these streams and for the first time proposes a number of water-based trails. Dane County wishes to cooperate with local municipalities, other units of government, conservation groups and the private sector in implementing these water-based trails. All local municipalities should assume the responsibility of protecting these water courses within their boundaries.

A comprehensive study of the present snowmobile system in Dane County should be done with the Dane County Snowmobile Council. This study should identify the snowmobile trail needs for the future and designate permanent corridor goals.

The Park Commission will examine the feasibility of equestrian use for all proposed trails. Potential sites for equestrian trails include Donald Park and a trail connecting the existing equestrian trails in Token Creek County Park south to McCarthy Park and on to the Village of Cottage Grove.

Study the designation of county scenic roads, similar to the state's Rustic Roads programs, that could also link local, county or state park facilities. Safety determinations would have to be made prior to the designation of any road. These roads could be designated on a map and pull-off areas could be provided. Recreational use of the scenic roads needs to be further defined in the planning process.

Ice Age National Scenic Trail

The Ice Age National Scenic Trail is designed to showcase the glacial features of Wisconsin. When completed the trail will extend more than 1,000 miles from Interstate Park on the St. Croix River in Polk County to Potawatomi State Park in Door County. The 55-mile Dane County portion of the trail would follow the terminal moraine of the Wisconsin ice sheet. Approximately nine miles of the trail exists within Dane County.

In 1992, the Wisconsin State Resources Board adopted a planned and mapped corridor within which lands for the trail may be acquired, developed, managed and protected. This adoption permits the Department of Natural Resources to provide Stewardship grants for acquisition of lands for the trail, as well as accept gifts of land and acquire lands for the trail. Dane County will continue to work cooperatively with the National Park Service, DNR and the Ice Age Park and Trail Foundation in acquiring land within this corridor.

The adopted trail corridor is shown on the map on page 61. Included within the trail corridor are Badger Prairie and Indian Lake County Parks and the 160-acre tower site transferred to the Parks Department's jurisdiction, located south of Verona. This corridor only provides the acquiring agency enough alternatives to purchase and place a trail right-of-way within the corridor. Therefore, only a portion of the lands within the corridor will be considered for acquisition. In areas where development has closed off portions of the trail corridor, additional lands may be needed to be added to the corridor to enable the placement of the trail.

Capital City State Trail

The 1990-1995 Parks and Open Space Plan recommended a trail linkage between the Military Ridge and Glacial Drumlin State Trails. The plan recommended that the link would run through or adjacent to the E-Way.

In 1992 a design concept was developed for the proposed 27-mile Capital City State Trail. The east rail corridor segment was constructed in 1994 and the E-Way link is programmed for construction by 1998. Completion of these two segments will leave approximately 10 of the original 27 miles remaining to be constructed. The Capital City State Trail is planned to be completed by 2000.

Land-Based Trails

 

Map No.
2. Fish Camp Park to Lake Kegonsa State Park	This proposal would link county and state facilities along the north shoreline of Lake Kegonsa through the Door Creek Resource area. Dane County, Town of Pleasant Springs and Lake Kegonsa State Park would work to complete this project.
3. LaFollette County Park to Stoughton with extension to Viking County Park	This trail would be land-based.
5. Town of Dunn and Capital City Trail	This trail would provide a link from the Town of Dunn on the west side of Lake Waubesa north to the Capital City Trail. Additionally, a trail could be located between the Town's Heritage Park and Babcock County Park.
6. Village of McFarland and Capital City Trail	This trail link would be located on the east side of Lake Waubesa linking the Village to the Capital City Trail.
7. Village of Oregon to Madison-Freeport rail line trail or Capital City Trail	This proposal would link the Village of Oregon either west to the proposed Madison-Freeport rail trail or, alternatively, north through the Town of Dunn and on to the Capital City Trail.
8. Madison to Freeport, Illinois, Rail Corridor	If and when rail service is no longer considered viable and with the concurrence of the owners of the line, the South Central Wisconsin Rail Transit Commission, the county would operate and manage the segment of the trail within Dane County. The county's participation will only be a part of a larger consortium of private and public parties.
10. Military Ridge Trail to Brigham County Park	This connector would allow bicyclists to divert off the trail for a short side trip to Brigham Park.
11. Mazomanie to Black Earth, possible continuation on to Cross Plains and Middleton	This proposal would use the proposed wastewater distribution line from Mazomanie to Black Earth. Connections could be made to Walking Iron, Festge and Salmo Pond parks, and possibly to the DNR's Mazomanie Wildlife Area. Dane County's participation will only be a part of a larger consortium of private and public groups.
12. Ice Age Trail/Festge to Indian Lake County Parks	This proposal recommends that Dane County play the primary role in acquiring the trail right-of-way between Festge and Indian Lake County Parks. The majority of the funding for this project would come from the state trail match grant funding program.
13. North Lake Mendota Trail System	This proposal actually encompasses a series of recommendations that the County should further investigate the feasibility of accomplishing. One trail would link the Frederick property and the City of Middleton to Mendota County Park and Governor Nelson State Park. Another trail could link the Waunakee Marsh Wildlife Area to Waunakee along the Sixmile Creek extending south to Governor Nelson Park. A third link would connect Governor Nelson Park to Yahara Heights County Park and the Cherokee Marsh on to Token Creek Park and Sun Prairie. Finally, a connection could be made from Cherokee Marsh north to tie into the trail between De Forest and Windsor, which has been proposed by those two communities.
14. De Forest to Windsor	This trail has been proposed jointly by these two communities. It is included in the County's plan to illustrate a possible connection to a larger series of trails (see recommendation 13).
16. Cambridge to the Glacial Drumlin Trail	This trail would run from the hamlet of London south to the Village of Cambridge. The Village of Deerfield has also suggested steps to connect Deerfield, London and Cambridge as part of a coordinated day-trip for bicyclists among the three communities. Events and promotions could be jointly coordinated.
17. Cambridge to Rockdale	This land-based trail would finish the trail through Cam-Rock County Park to connect the two villages.
19. Capital City Trail to Aldo Leopold Center in Monona	Trail connection from the Capital City Trail to East Broadway and the Aldo Leopold Center.
20. City of Sun Prairie to the Village of Cottage Grove	Trail connection between Sun Prairie and Cottage Grove with McCarthy Park as the mid-point.
21. Token Creek Parkway	Trail corridor to connect Token Creek Park with the Blooming Grove Drumlin Area.

Water-Based Trails

Map No.
1. Babcock/Fish Camp Park	This trail would be water-based along the Yahara River from Babcock Park to Fish Camp Park on Lake Kegonsa
4. LaFollette County Park to Viking County Park	This trail would also be water-based on the Yahara River.
9. Upper Sugar River to Belleville	This trail would be water-based from the Sugar River to Belleville.
15. Deansville State Wildlife Area to the Village of Marshall	This water-based trail would be centered on the Maunesha River.
18. Cambridge to Rockdale	This trail would be water-based, centering on the Koshkonong Creek, connecting the two villages.

D. STREAMBANK EASEMENT PROGRAM

The Dane County Stream Bank Protection Program was initially approved by the County Board in 1991 to allow the county, local municipalities and qualified, nonprofit conservation organizations to acquire, with county aid, conservation easements along stream banks. The Board in 1992 voted to expand the program to include acquisitions of land. The program is designed to maintain and improve water quality by protecting critical stream corridors. Additional potential benefits include improved fish and wildlife habitat, better flood control and provision of open space.

Two types of streams in Dane County would be eligible for stream bank protection plans under this program:

a) DNR designated "priority streams"

Sugar River East	Flynn Creek
Sugar River West	Upper Yahara River
Primrose Brook	Six Mile Creek
Deer Creek	Token Creek
Fryes Feeder Creek	Bohn (Elvers) Creek
Story Creek	Upper Black Earth Creek

b) Dane County designated "priority streams"

Badger Mill Creek (added to Sugar River)	Koshkonong Creek (north Cam-Rock)
Schlapbach Creek (added to Sugar River)	Starkweather Creek
Gordon Creek	Pheasant Branch
Kittleson Valley Creek	Halfway Prairie Creek
Door Creek	Wendt Creek
Dunlap Creek	Brewery Creek

So far, approximately two acres of streambank easements have been acquired along Token Creek through this program.

E. RECOMMENDATION FOR MANAGEMENT OF EXISTING PARKS AND RESOURCE AREAS

Some county parks and resource areas do not meet the criteria for size and facilities generally considered for large regional parks or resource areas. However, they continue to be important areas for recreation and resource protection. Therefore, the following list of county parks and resource areas should be given consideration for the establishment of an agreement with a local unit of government or other governmental agency or private non-profit organization for their operation and management. The county would maintain involvement as far as developing a management agreement in partnership with the governmental or private entity.

Fish Lake Park Goodland Park	Goodland Park
Half-Way Prairie School La Follete Park	La Follete Park
Lakeview Park Mendota Park	Mendota Park
Phil's Wood Riley-Deppe Park	Riley-Deppe Park

F. OPERATIONAL AND FUNDING RECOMMENDATIONS

• Maintain a nucleus of Parks Department staff and review, update and implement the Parks Department's five-year staffing plan. There will be needs for additional staff for an ever-growing parks and open space system, and a population noticeably larger every year, with constantly increasing use per person of the system.
  
  
• Review, update and implement the ten-year capital facilities plan and the plan for compliance with the Americans with Disabilities Act.
  
  
• Develop some form of community assistance center, perhaps jointly with the Regional Planning Commission, to provide information and contacts to local communities who wish to participate in grant programs, develop community parks, and so on (local municipality recommendation).
  
  
• Examine a number of op tions to supplement county staffing, such as volunteer management of facilities by private non-profit groups, development and maintenance of certain facilities by specific users groups, corporate sponsorship of country park and recreational efforts and joint operations with local municipalities.
  
  
• Examine alternatives to fee simple acquisition of lands, such as purchase of easements, resale of excess lands and others.

The Parks Department has been working since 1994 to comply with requirements of the Americans With Disabilities Act and this plan includes recommendations to complete all improvements by 1998.

PRIORITIZATION OF 1996-2000 PARKS AND OPEN SPACE PLAN RECOMMENDATIONS

Parks — Acquisitions for Additions to Existing Parks

First Priority	Second Priority
Donald	Fish Lake
Indian Lake	McCarthy
Schumacher Farm	Stewart
Viking	Walking Iron

Resource Areas — Acquisitions for Additions to Existing Parks and Resource Areas and Preparation of Project Plans

First Priority	Second Priority
Nine Springs E-Way	Black Earth Creek Watershed
Cherokee Marsh	Dorn Creek - Six Mile Creek
Ice Age Trail Junction	Door Creek Wetlands
Lower Mud Lake

Trails

First Priority

• Link from Token Creek Park to Sun Prairie
• Capital City Trail
• Cambridge to Glacial Drumlin Trail
• Aldo Leopold Center to Capital City Trail/Heritage Center
• Lower Mud Lake/Babcock Park to Fish Camp launch — water-based
• Upper Sugar River to Belleville
• Deansville State Wildlife Area to Marshall along the Maunesha River
• Cambridge to Rockdale along the Koshkonong Creek
• Cambridge to Rockdale land-based trail
• Ice Age Trail
• Link from Indian Lake to Festge County Parks as part of Ice Age Trail

  Second Priority

• Fish Camp to Lake Kegonsa State Park
• LaFollette Park to Stoughton with extension to Viking County Park
• Madison to Freeport, Illinois, Rail Corridor
• North Lake Mendota Trail System
• Town of Dunn and Capital City Trail
• Village of McFarland and Capital City Trail
• Village of Oregon to Madison-Freeport rail line or Capital City Rail
• Military Ridge to Brigham
• Mazomanie to Cross Plains, possible continuation to Middleton
• DeForest to Windsor

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PARKS AND OPEN SPACE PLANNING PROJECTS

Identified by Municipalities and
County Parks and Open Space Plan

Many of the projects listed in this plan have also been identified as planning objectives by local communities. The following is a list of communities and the associated specific park and open space project. Each project is listed in one of four categories—land-based trail, water-based trail, park, or resource protection area—with a brief description of the project.

Land-Based Trails

Community	Project Description
City of Middleton/Town of Westport	North Lake Mendota Trail System. This proposal encompasses a series of trail linkages along the north side of Lake Mendota, including: Frederick property and City of Middleton to Mendota County Park and Governor Nelson State Park.
Village of Waunakee/Town of Springfield/ Town of Westport	Waunakee Marsh Wildlife Area to Governor Nelson Park.
City of Madison/City of Sun Prairie/Town of Westport/Town of Burke	Governor Nelson Park to the Cherokee Marsh and on to Token Creek Park to Sun Prairie.
City of Madison/Village of DeForest/Towns of Burke, Westport and Windsor	Cherokee Marsh to the locally proposed trail between Windsor and DeForest.
City of Monona/City of Madison	Bike connections from Nine Springs E-Way and Capital City Trail to Broadway to Aldo Leopold Center in Monona.
City of Sun Prairie/Town of Burke/City of Madison	Trail link between Sun Prairie's westside neighborhoods, proposed golf course between Sun Prairie and Madison, and Token Creek County Park.
City of Sun Prairie/Village of Cottage Grove/Towns of Sun Prairie, Cottage Grove and Burke	Link between Sun Prairie, south to the Patrick Marsh and McCarthy County Park, ending in the Village of Cottage Grove. Trail connector between the City of Sun Prairie and Token Creek County Park.
Village of Cottage Grove	Work with the Village of Cottage Grove to acquire and improve lands west of Fireman's Park to provide rest facilitiesfor users of the Glacial Drumlin Trail. Recommends the development of the Glacial Drumlin Trail west to link with the Military Ridge Trail.
Village of Cambridge/Town of Deerfield	Provide a trail linkage from London on the Glacial Drumlin State Trail south to the Village of Cambridge.
Village of Cambridge/Village of Rockdale	Acquire land to finish the trail through Cam-Rock Park to connect the two villages.
Village of McFarland	Construct a trail system from Siggelkow Road to Lower Mud Lake, protecting the wetland and floodplains east of the Village. Link McFarland portion of hiking trail to the E-Way.
Town of Dunn/Town of Pleasant Springs/City of Stoughton	Trail connectors between Fish Camp Launch and Lake Kegonsa State Park to Stoughton with an extension to Viking County Park.
Town of Dunn	Trail links between the west side of Lake Waubesa north to the Capital City Trail. Also, a trail between the Town's Heritage Park and Babcock County Park.
City of Verona/City of Madison/Town of Verona	Trail connector between Badger Prairie County Park and the City of Madison's Elver Park as part of the Ice Age Trail Junction Area.
Village of Cross Plains	Develop an integrated local and regional trail system, including the Ice Age Trail.
Town of Berry	Acquire a trail connector between Festge and Indian Lake County Parks as part of the Ice Age Trail.
Village of Mazomanie/Village of Black Earth/Village of Cross Plains	Explore the possibility of linking Walking Iron park north to the DNR's Mazomanie Wildlife Area. Trail connector between Mazomanie and Black Earth along the route of the proposed wastewater distribution line. Possible extension to the Village of Cross Plains.
Village of Blue Mounds/Town of Blue Mounds	Trail connector between the Military Ridge State Trail and Brigham County Park.

Water-Based Trails

Village of Marshall/Town of Medina/Town of York	Create a water-based trail along the Maunesha River connecting the Village of Marshall and the Deansville Wildlife Area.
Village of Cambridge/ Village of Rockdale	Create a water-based trail along the Koshkonong Creek connecting the two villages.
Town of Dunn/Town of Pleasant Springs/City of Stoughton	Water-based trails along the Yahara River from Lower Mud Lake to Fish Camp Park on Lake Kegonsa, and LaFollette County Park to Viking County Park.
Village of Belleville/Town of Montrose/Town of Verona	Water-based trail along the upper Sugar River south to Belleville.

Parks

City of Stoughton/Town of Pleasant Springs/Town of Dunkirk	Acquisition of land providing a link between the City of Stoughton across the Yahara River to Viking County Park.
Village of Mazomanie	Consider a trade of a portion of Walking Iron Park to the Village of Mazomanie for recreational purposes in return for resource lands to be added to the park.

Resource Protection Areas

City of Madison	Land exchanges and preparation of an overall management plan for the Indian Springs/MMSD portion of the E-Way.
Village of Marshall/Town of Medina/Town of York	Preserve the natural features and conserve the natural resources associated with the Maunesha River and bank area.
Village of McFarland	Acquire wetland adjacent to Lower Mud Lake and the E-Way.
City of Verona/Town of Verona	Sugar River Wetlands Badger Mill Creek

 

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LAND ACQUISITION

Eminent Domain

Dane County's park land acquisition procedures have been established to comply with Chapter 32, Wis. Stats. These statutes provide the legal framework for public agencies utilizing the powers of eminent domain to acquire land. Dane County has established a general policy of acquiring park and open space lands only from willing sellers. The county has deviated from that policy infrequently during the past 60 years.

In 1949 Dane County utilized its powers of eminent domain to acquire land for LaFollette County Park. The county also considered condemning lands for Lake Farm County Park in 1989. In that situation, Resolution 331, 1988-89, "Preliminary Authorization of Condemnation of Lands to be Included in Lake Farm Park," was passed by the County Board; however, the landowner ultimately conveyed the deed to the county voluntarily. More recently, in 1995, the County Board of Supervisors passed a "Resolution of Necessity," thereby initiating the condemnation process to acquire a parcel of land for the Ice Age Junction Resource Protection Area. This action was taken by the Board of Supervisors at the request of the landowner. In this case, once the "Resolution of Necessity" was passed, the deed to the property was turned over voluntarily and the formal proceedings of condemnation were not pursued. This action, commonly known as "friendly condemnation," may provide the landowner certain options to defer capital gain tax liability.

Types of Transactions

There are many different tools available to effect the county's overall land acquisition objectives. The most commonly used transaction is transfer of title by warranty deed. In this situation, the county, pursuant to the various laws, ordinances and codes established, pays fair market value for the fee simple ownership of the desired real estate.

The county may also acquire easements to accomplish certain resource protection or public access needs. Easements allow a landowner to transfer some of the rights to their land while retaining other rights. For instance, a landowner may give up the right to plant row crops or graze cattle on a parcel of land while still retaining the right to control access to that land. The price paid for easements varies from case to case, but generally the more rights the landowner transfers, the greater the compensation for the easement.

A "Right of First Refusal" may be purchased by Dane County to secure an opportunity to purchase a parcel of land at some unspecified point in the future. Compensation for a "Right of First Refusal" is generally minimal and will be negotiated on a case-by-case basis. A Right of First Refusal provides no specific terms for the future transaction but provides guidance as to how the terms of the transaction will be established when it occurs.

Options also give the county the right to purchase land at some future point. Options differ from right of first refusals in that the options specify the terms by which a transactions must occur. The county, however, may elect not to exercise its purchase option, in which case the option would expire and the property owner would retain title to the land. Compensation for options is generally minimal and often the compensation paid for the option is deducted from the purchase price at the time the option is exercised.

The county may enter into short- or long-term lease arrangements when the county's goals can be accomplished by such arrangements. Compensation for leases is generally based on prevailing market rates for the type of land being leased. The county frequently leases land it owns for specified periods of time at specified prices.

Deed restrictions may also facilitate the county's land acquisition objectives. Deed restrictions may prevent building at certain locations on a property or they may restrict the size and style of a building, or prevent tree cutting. Deed restrictions are most often used in conjunction with the subdivision of land and are placed on title to property at the request of the municipality approving the land division.

The county will continue to explore innovative alternatives to full fee ownership of land when the county's park and open space objectives can be accomplished by less than full fee ownership.

Partnerships

Partnerships have been an invaluable component of Dane County's land acquisition program during the period 1990-1996. During this period, the Dane County Board of Supervisors authorized land purchases valued at $7,014,951. The net cost to Dane County for these same transactions is $3,423,811.50. Partnerships in the form of state grants, local government contributions, non-profit conservation organization involvement and private sector donations account for the huge disparity between the market value of the real estate and the net cost to the county.

The state of Wisconsin has been the county's primary partner. The state stewardship program, which is managed by the Wisconsin Department of Natural Resources, has been the major source of outside revenue for Dane County resulting in approximately $1.9 million in state funds committed to Dane County during the period. These funds are made available on a reimbursement basis and are only recognized as revenue by the county after the transaction has closed.

Other governmental agencies have entered into partnership agreements with Dane County. The county strives to involve a local unit of government when a project falls within or adjacent to its municipal boundary.

Outright donations of land have also been an important component of the county's land preservation efforts. Individuals have donated land at Donald Park and at Cam-Rock Park, and other public agencies have donated land in the Nine Springs E-Way and the Ice Age Junction Resource Protection Area. Individuals and businesses have also chosen to sell land to Dane County at less than fair market value (bargain sales).

Non-profit Conservation Organizations (NCOs) have actively assisted Dane County with several real estate transactions. NCOs are able, at times, to react more quickly to opportunities than are governmental agencies; they provide a direct fund-raising link to the private sector, and they may be eligible for certain state cost-share programs that are not available to Dane County. Over $500,000 in state stewardship funds from programs not directly available to Dane County have been brought into county transactions by various NCOs. In addition to their fund raising and technical support, NCOs have accepted certain operation and maintenance responsibilities for land identified in county-approved plans.

Acquisition Financing Alternatives for the Future

As shown in the previous section, Dane County has in the past employed a number of strategies to acquire park and open space lands. It is important to maintain a broad spectrum of funding sources, including cost-cutting partnerships, into the future to maintain the viability of the Parks Department's acquisition goals.

A sample of other counties in Wisconsin as well as Midwestern municipalities similar in size to Dane County indicates acquisition financing strategies similar to Dane County's. The primary source of revenue for all of these agencies is general property taxes and state aids. Another option, recently adopted by the Dane County Board of Supervisors in Sub. 1 to Res. 279, 1995-96, creates a way for Dane County taxpayers to donate money directly to the Dane County Conservation Fund for land acquisition.

In addition, Sub. 1 to Res. 281, 1994-95, passed by the County Board, which directed the updating of the Park and Open Space Plan, also directed the County's legislative lobbyist to explore possibilities for establishing tax credits for landowners who dedicate easements for conservation purposes. Because county taxes are a small part of the total tax liability for a landowner, reductions in either the state property tax or the state income tax would be needed to provide an adequate incentive of compensation for easement donation. The state of Illinois passed legislation in 1994 which would allow a landowner to apply for a reduction in their property taxes on properties covered by a perpetual conservation easement. Similar legislation would need to be passed in Wisconsin to permit implementation of this type of program.

Voluntary contributions by the private sector, in particular real estate developers, should be targeted for the acquisition of parks and open spaces. In a recent book published by the Urban Land Institute, most of the developers of eleven real estate projects believe that landscaping and amenities boosted profits by 5 to 15%. The ULI study also found that residents respond well to site plans and landscape design that protect the environment and preserve open space. A 1993 survey of features homebuyers consider "very important" or "important" ranked "lots of natural, open space" as the single most important attribute. Walkways and bike paths ranked second.

Therefore, developers of projects located next to county parks or open spaces should share in the cost of providing these amenities in a symbiotic relationship which benefits both sides. A certain voluntary contribution for each residential lot or for every square foot of non-residential space created should be negotiated between the county and the developer.

Other municipalities around the country have also used land records recording fees to fund the acquisition of parks and open spaces. The rationale for this type of mechanism is that these types of fees are a good barometer of the development activity occurring in a community and that with new development comes the obligation to provide parks and open spaces. The higher the level of development activity, the greater the need for parks and open spaces as well as the funding needed to acquire them. The amounts of these fees are set by state statute and would need to be revised to become a source of revenue for open space acquisition.

Finally, Wisconsin's impact fee law, passed in 1994 and becoming effective in May 1995, permits counties to establish an impact fee program. Counties can use the law to require that new development which is occurring in a city, village or town pays for the impacts that it has on the need for new county facilities, such as parks. Dane County should analyze this law along with other financing options.