On the agenda: Alma Land Management Agenda 09-04-2026 — Data Center (Sep 4)

Notice of Public Meeting
Committee:

Land Management Committee

Date:

Friday, September 4th, 2026

Time:

8:00 a.m.

Location:
Remote Access:

3rd Floor County Board Room, 407 S. 2nd Street, Alma, WI 54610

click here to join

This meeting is open to the public, but portions of the meeting may be closed if this notice indicates that the
committee may convene in closed session.
The following matters may be reviewed, discussed and acted upon at this meeting, and deviations from the order
shown may occur:

1.
2.
3.
4.
5.
6.
7.

8.
9.
10.
11.
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18.
Date: 08/31/2026

Land Management Hearing and Meeting
Call to Order
Roll Call of Members
Verification of Open Meetings Law Compliance
Approve Agenda
Approve Minutes from Previous Meeting
Public Comment
Public Hearing
A.
Reading of Notice for Public Hearing
B.
Comprehensive Land Use Plan Revision
C.
Public Testimony
D.
Correspondence
E.
Public Hearing Adjournment
An Ordinance to Adopt the Comprehensive Land Use Plan
Marty Wenger
General Discussion on Data Centers
GIS/LIO Report
Surveyor Report
Director Report
Chairperson Report
Correspondence
Future Agenda Items
Next Meeting Date and Time
Adjourn

Max Weiss, Chair
_________________________________________
By: Lisa Schmitt, County Clerk

Board Members: If unable to attend, please contact the Chair. If the Chair is unavailable, please contact the County Clerk’s Office at 608-685-6209.
If the Chair and the County Clerk are not available, please call the Administrative Coordinator at 608-685-6234.
Persons with Disabilities: Buffalo County shall attempt to provide reasonable accommodations to the public for access to its public meetings,
provided reasonable notice of special need is given. If you require special accommodations to attend this meeting, please contact the County Clerk’s
Office at 608-685-6209.
Public Access to the Courthouse: The South Entrance will be the only access to the building after 4:00 p.m. Monday – Thursday and after 12:00
p.m. on Fridays.
Persons who are members of another governmental body, but who are not members of this committee, may attend this meeting. Their attendance
could result in a quorum of another governmental body being present. Such a quorum is unintended, and they are not meeting to exercise the
authority, duties, or responsibilities of any other governmental body.

BUFFALO COUNTY MINUTES
Committee of the Board:
Date of the Meeting:

Land Management
Wednesday, July 15, 2026

The Hearing was called to order at 8:14 a.m.
Land Management Members Present: Mr. Max Weiss, Mr. Chris Lindstrom, Mr.
Robert Sendelbach, Mr. Steve Nelson, Mr. William Bruegger absent-Mr. Joe Bragger
Others Present for All or Parts of the Meeting: Mr. Cale Severson, Ms. Abigail
Soderberg, Ms. Jacqueline Schneider, Mr. Ron Jasperson.
Meeting verified with Open Meeting law compliance
Approve agenda-Mr.Lindstrom motion, Mr. Sendelbach second, agenda approved
Review/Discussion/Action regarding Previous Meeting Minutes: Mr. Bruegger
motioned to approve the minutes, seconded by Mr. Sendelbach. Carried.
Public comment-none
Presentation on Remonumentation of Nelson—Mr. Jasperson spoke on the topic,
discussion on costs. It will cost $354,000 to complete remonumentation starting in 2027.
Maxville has 2 weeks of field work to complete, will be finished in the fall.
Data centers—Discussion was held regarding the fact that some counties have
enacted moratoriums, some are considering. Not enough information has come from
the state level. Discussions were held on water usage, power usage, and environmental
impacts.
GIS/LIO report—Ms. Schneider spoke on mapping, trout stream easement mapping
and imagery. She also spoke on grant submissions.
Surveyor report-Mr. Jasperson did his update during the agenda item above
Director report-Mr. Severson discussed that zoning is busy with the construction
season and that they are almost double the sanitary permits as last year. Land
Conservation has several projects going on and several future projects planned. Mr.
Severson shared that he was elected onto the state Land and Water Board of Directors.
Discussion was held on the 9 Key element plan and future projects for that.
Committee chair report-Mr. Weiss spoke on the need to attend the Town of Nelson
Board meeting to share the remonumentation cost.
Public Correspondence: none

Future agenda items- remonumentation
Review/Discussion/Action regarding the Next Meeting Date and Time: The next
meeting date and time will be August 7th at 8am
Adjournment: Mr. Bruegger motioned to adjourn. Adjourned at 9:36am
Respectfully Submitted,
Cale Severson
Land Management Director

Buffalo County Ordinance
_______________________________________________________________________
Drafted By: Cale Severson
Presented Month/Year:
September 2026
Involved Committees:
Land Management

County Department:
Land Management
Fiscal Impact: YES / NO

ORDINANCE #26-08-______
AN ORDINANCE TO ADOPT COMPREHENSIVE LAND USE PLAN
The Board of Supervisors of Buffalo County hereby ordains as follows:
WHEREAS, On September 4th, 2026, the Buffalo County Land Management Committee considered
draft copy of Buffalo County Comprehensive Land Use Plan to ordinance entitled "Buffalo County
Comprehensive Land Use Plan" and placed the same on file in the Office of Land Management for a
period of time not less than 30 calendar days prior to September 4th,2026, and;
WHEREAS, the Buffalo County Land Management Committee held a public hearing on September
4th, 2026, for the purpose of gathering testimony and developing a final draft of said ordinance to
recommend to the Buffalo County Board of Supervisors, and;
WHEREAS, notice of this meeting and the Board's final consideration of adoption, was published in
the Buffalo County News on August 6th, 2026, in accordance withs. 66.0103 Wisconsin Statutes,
and;
WHEREAS, it is the recommendation to the Buffalo County Board of Supervisors to adopt said
Ordinance as approved by the Buffalo County Land Management Committee during their
September 4th, 2026, committee meeting.
NOW, THEREFORE BE IT ORDAINED THAT the Buffalo County Board of Supervisors hereby adopts
the following ordinance entitled "Buffalo County Comprehensive Land Use Plan Ordinance" which
shall be kept permanently on file and open to public inspection in the Office of the Buffalo County
Clerk:
CHAPTER 760
BUFFALO COUNTY COMPREHENSIVE LAND-USE PLAN
760.01 TITLE
Chapter 760 shall be known as the Buffalo County Comprehensive Land Use Plan Ordinance.
760.02 PURPOSE
This chapter is adopted under authority granted by sections 59.69(2) and (3) and 66.1001, Wis.
Stats.

Buffalo County Ordinance
_______________________________________________________________________
760.03 APPLICABILITY
This chapter applies to all unincorporated areas of Buffalo County and to those areas within
incorporated municipalities whose governing bodies have by resolution agreed to have their areas
subject to the county comprehensive plan.
760.04 ADOPTION OF COMPREHENSIVE PLANNING
Pursuant to sec. 66.1001(4)(c), Wis. Stats., the Buffalo County Board of Supervisors does, by
enactment of this ordinance, adopt the document entitled "Buffalo County Comprehensive Land
Use Plan”, including all maps and descriptive materials contained therein, which is on file at the
Buffalo County Clerk's office.
760.05 CONFLICT OF PROVISIONS
If the provisions of this ordinance conflict with or contravene with other ordinances, the provisions
of each ordinance shall prevail as to all matters and questions arising out of the subject matter of
each such ordinance.
760.06 SEVERABILITY OF ORDINANCE PROVISIONS
The provisions of this ordinance shall be deemed severable, and it is expressly declared that the
Buffalo County Board of Supervisors would have passed the other provisions, sections,
subsections, paragraphs, clauses, or phrases of this ordinance irrespective of whether or not one
or more of such parts may be declared invalid. If any provision or part of this ordinance or the
application thereof to any person or circumstance is held invalid, the remainder of the ordinance
and the application of such provision to other persons or circumstances shall not be affected
thereby.
Adopted at a duly called and noticed meeting of the Buffalo County Board of Supervisors on this
28th day of September 2026.

______________________________________
Dennis Bork, County Board Chairperson
ATTEST:

_______________________________
Lisa Schmitt, County Clerk

Buffalo County Ordinance
_______________________________________________________________________

Land Management Committee:
______________________________
Max Weiss

_______________________________
Chris Lindstrom

______________________________
William Bruegger

_______________________________
Steve Nelson

______________________________
Robert Sendelbach

_______________________________
Joe Bragger

Legal-Fiscal-Administrative Approvals:
Legal Note:

Fiscal Impact:

____________________________________
Karina O’Brien, Corporation Counsel

________________
Date

____________________________________
Lee Engfer, County Administrator

________________
Date

Final Draft

Comprehensive Land Use Plan
2026-2046
Bu alo County, Wisconsin
Acknowledgements

Technical Committee Members
Cale Severson – Director (Zoning Admin/County Conservationist), Dept. Land Management
Briar Golden – Resource Management and Planning Specialist, Dept. Land Management
Nathan Machula – Former GIS/ Land Information O icer, Dept. Land Management
Bill Hedberg – Former Economic Development Coordinator
Technical Committee members were comprised of County employees in the areas of mapping,
zoning, land conservation, and economic development. The role of the Technical Committee was to
take on the majority of the planning facilitation and writing responsibilities. The following
individuals were crucial in initiating the update process and encouraged it to be done in-house by
those who have the best interest of Bu alo County in mind. These individuals passed on from this
world before the completion of the plan update. We dedicate our work to them and hope that it will
have met their typical high expectations.
Mike Owecke – Former Bu alo County Zoning Administrator
Carl Duley – Former UW Extension Agricultural Agent

Steering Committee Members
Carrie Venner-Adams – Representing the East Central Area: Towns of Bu alo, Cross & Milton
Collin Weltzien – Representing the East Central Area: Town of Glencoe
Kasondra Serum – Representing the Northwest Area: Towns of Maxville, Canton, Nelson, and
Modena
Deborah Ru – Representing the West Central Area: Towns of Alma, Belvidere, and Lincoln
Scott Werlein – Representing the Northeast Area: Towns of Mondovi, Naples, Gilmanton and Dover
Steering Committee members were comprised of members of towns boards or community
members that were invited to participate by their town board. These committee members reviewed
the work of the Technical Committee and ensured that the plan was reflective of the community
members they represent. Steering Committee members were also responsible for developing the
goals and objectives at the end of each chapter of this plan.

Table of Contents
A Note about this Plan …………………………………………………………………………………………. i
Chapter One: A Look at Where We’re Going
Issues and Opportunities Faced by Bu alo County ......................................................... 1
Element Overview...................................................................................................... 1
Key Issues | Opportunities .......................................................................................... 2
Strategic Priorities (2026-2046) ................................................................................... 2
Community Vision ..................................................................................................... 7
Demographic Trends and Outlook ............................................................................... 7
Chapter Two: A Place to Call Home
Housing in Bu alo County ........................................................................................... 11
Element Overview.................................................................................................... 11
Existing Conditions .................................................................................................. 12
Needs and Demand 2026-2046 ................................................................................ 16
Goals and Objectives ............................................................................................... 18
Chapter Three: Traversing Ridge, River, and Valley
Transportation in Bu alo County .................................................................................. 17
Element Overview.................................................................................................... 17
Existing Transportation System ................................................................................. 18
State and Regional Transportation Plans .................................................................... 21
Goals and Objectives ............................................................................................... 23
Chapter Four: Providing Necessities
Utilities and Community Facilities of Bu alo County ..................................................... 28
Element Overview.................................................................................................... 28
Utilities ................................................................................................................... 29

Community Facilities ............................................................................................... 40
Goals and Objectives ............................................................................................... 47
Chapter Five: Our Land, Water, and Heritage
Agricultural, Natural, and Cultural Resources of Bu alo County ..................................... 52
Element Overview.................................................................................................... 52
Our Landscape ........................................................................................................ 53
Agriculture and Natural Resources ........................................................................... 53
Cultural Resources .................................................................................................. 60
Goals and Objectives ............................................................................................... 64
Chapter Six: Getting Down to Business
Economic Development Bu alo County ....................................................................... 72
Element Overview.................................................................................................... 72
Employment Information ......................................................................................... 73
Economy ................................................................................................................ 74
Environmentally Contaminated Sites: ....................................................................... 75
County, Regional, and State Economic Development Programs .................................. 75
Goals and Objectives ............................................................................................... 77
Chapter Seven: Staying Connected
Intergovernmental Cooperation with Bu alo County ..................................................... 80
Element Overview.................................................................................................... 80
Relationships with Other Entities .............................................................................. 81
Planning and Other Agreements ............................................................................... 83
Emergency Response .............................................................................................. 83
Extraterritorial Zoning (ETZ)....................................................................................... 83
Existing and Potential Conflicts ................................................................................ 84
Goals and Objectives ............................................................................................... 85

Chapter Eight: Stewardship
Land Use in Bu alo County.......................................................................................... 88
Element Overview.................................................................................................... 88
How Land Use was Decided in the Past ..................................................................... 89
Current Zoning and Land Use Ordinances ................................................................. 89
Other Land Use Ordinances ..................................................................................... 91
Current Development Trends .................................................................................... 92
Terminology for Present and Future Land Use ............................................................ 93
Current and Future Land Use.................................................................................... 94
Guiding Future Development .................................................................................... 96
Land Demand and Prices ......................................................................................... 98
Absentee Landowners ............................................................................................. 99
Managed Forest Law (MFL) ..................................................................................... 101
Use Value Assessment. .......................................................................................... 103
Goals and Objectives ............................................................................................. 103
Chapter Nine: Plan Implementation ........................................................................... 109
Element Overview.................................................................................................. 109
Action Items .......................................................................................................... 110
Consistency .......................................................................................................... 111
Plan Adoption ........................................................................................................ 111
Plan Amendment Process ...................................................................................... 111
Closing Remarks ................................................................................................... 113
Appendix .................................................................................................................. 114

A Note about this Plan
The Bu alo County Comprehensive Land Use Plan can be broken down into three main
parts: summary, details, and actions. The first full page of chapter 1 summarizes the main
concerns and goals over the twenty-year plan period. After this, the plan delves into details
about Bu alo County’s population, housing, transportation, utilities & services, natural &
cultural resources, economy, government, and land use. Interspersed in this detailed
information are goals established by the steering committee. These goals can be found at
the end of each chapter (before the maps) in chapters 2-8. The final chapter, chapter 9,
lays out a sequenced plan to work toward achieving the goals set in the earlier chapters.
This chapter also contains a ‘calendar’ to update the plan by 2036.
The Bu alo County Comprehensive Land Use Plan was first written in 2013 to meet the
requirements of Wisconsin’s Comprehensive Planning Law, s. 66.1001, Wis. Stats. This law
requires local units of government engaging in any regulatory actions related to mapping,
subdivisions, zoning or shorelands to ensure that those actions are consistent with the
local governmental unit’s comprehensive plan.
Great amounts of time and energy went into developing the initial plan. For its e orts,
Bu alo County was awarded a grant from the State of Wisconsin for $126,000 upon the
completion of its plan and separate plans for 12 towns and a village. While these towns
were covered under the county’s ordinances and weren’t required to have their own plans,
they were encouraged to write their own plans and identify their own unique challenges
and goals.
The ‘Plan Implementation’ section of the original 2013 document, lays out is a process that
requires the document be updated “as necessary but no less than once every 3 years after
the plan is adopted.” There is no evidence today that the plan has been reviewed or revised
in any way since its initial publication. Despite this, state law does require that land use
plans be updated at least once every ten years.
It is self-explanatory that an update was not completed within 10 years of adopting the
initial plan. Unfortunately, departmental changes and a delayed release of census data
(thanks to the covid-19 pandemic) would set the 2023 update back to 2026. However, a
silver lining to this late update may be that complications from data release and analysis
can be avoided during a 2035-6 plan update.
Population projections used in this plan come from the WI Dept. of Administration who
makes predictions using their own in-house methods and US Census data. Amusingly, the
technical committee was suspected by the DOA of obtaining leaked population projections

i

before they were released publicly. Really, we got our hands on the projections early thanks
to our anxious waiting, a misunderstanding at the DOA, and a Duck-Duck-Go web browser.
Most of the data in this plan come directly from the US Census Bureau, WI DNR, or US
Department of Agriculture. To make future updates more e icient, data sources were cited
below most tables/figures, and exact data sets were identified whenever possible
(especially with US census data). Valuable information can also be found in the newly
added appendix, including a summary of results from our 2024 community survey.
At the beginning of each of the 9 chapters, an ‘element overview’ paraphrases the required
chapter content listed in Wis. Stat. § 66.1001(2). The intent of this addition was to inform
future plan writers of the requirements that they must fulfill when updating the plan. These
statutory requirements should, by no means, be considered boundaries but should instead
be thought of as the ‘bare minimum.’ Authors may be as creative as they see fit, perhaps
even incorporating more digital or interactive features in the future.
When it comes down to the impact of this 2026 plan update, the planning component of
the document itself is underwhelming. As can be seen in 2024 survey results, there seems
to be a fair degree of contentment among Bu alo County’s residents. Most respondents
indicated that they would like, for the most part, to keep the landscape and communities of
Bu alo County the same as they are. Most concerns were ‘big picture’ problems being
experienced at the state and national level. Housing/ property costs, childcare, and
managed forest tax law were recurring themes in both the 2024 land use survey and
steering committee meetings.
While solutions to these issues seem to be beyond the reach of county-level land use
reform, the discussion around them highlighted the importance of intergovernmental
cooperation. Town board members expressed a desire to improve the connection between
local town governments and their representatives at the county level, a desire that echoes
the sentiments of the original 2013 land use plan. So, whether or not we succeed at
lowering costs associated with buying a home or finally achieve Managed Forest Law
reforms, I believe one of the greatest successes of this plan update could be a renewed
sense of community between the county and its towns.

Respectfully,

Briar Golden- member of the Technical Committee

ii

1
A Look at Where We’re Going
Issues and Opportunities Faced by Bu alo County

Figure 1.1 “Birds-Eye View of the Village of Mondovi” (Briggs & Falconer, 1877)

Element Overview
Issues and opportunities element. Background information on Bu alo County and a statement
of overall objectives, policies, goals and programs of the county to guide future development
and redevelopment over a 20-year planning period. Background information includes
population, household and employment forecasts used in the development of the
comprehensive plan. Also, demographic trends, age distribution, educational levels, income
levels and employment characteristics that exist within Bu alo County as per Wis. Stat. §
66.1001(2)(a).

1

Issues and Opportunities

Key Issues | Opportunities
Population: Declining and aging population, median household income 9% lower than
state’s, lower average educational attainment and declining job market | Residents are
resilient and cohesive, willing to travel for work but keep residence in Bu alo County.

Housing: Housing is becoming more expensive and an increasing proportion of homes are
being used for second homes or short-term rentals | Aging housing stock can be restored
rather than demolished, multi-generational housing opportunities.

Infrastructure: High road miles to low population ratio, areas without broadband connection
remain | Active towns willing to coordinate with the County Highway Department, possible
opportunities for grants to extend broadband to last mile areas.

Economy: Declining real GDP, agricultural economy, services don’t meet needs of residents |
Diversify agricultural products produced, broaden the types of industries operating in Bu alo
County.

Natural Resources: Numerous locations with steep slopes, sensitive soils and flood
hazards | Natural beauty and fertile soils- need to be protected.

Intergovernmental coordination: Communication between county board supervisors and
town boards could be improved | Supervisors can be in regular contact with the towns they
serve.

Strategic Priorities (2026-2046)
1. Preserve and rehabilitate current housing stock; promote home ownership among
Bu alo County’s residents.
2. Improve the availability of necessary services, namely childcare, in Bu alo County to
retain younger generations.
3. Readjust the low assessment values for lands enrolled in the Managed Forest Law
Program.
4. Maintain existing transportation infrastructure while strengthening the partnership
between the Bu alo County Hwy Dept and Towns.
5. Normalize communications between county board supervisors and the towns that they
represent.

Issues and Opportunities

2

Community Vision
Bu alo County will maintain a resilient rural economy led by agriculture and various other
existing businesses; protect shorelands, blu lands, and high quality waters; and o er housing
and services that allow residents to age in place. Future development will be concentrated in
communities and corridors with infrastructure, while conserving prime farmland and sensitive
natural areas. Broadband, transportation safety, and EMS capabilities will support current
dispersed rural living and business operations.

Demographic Trends and Outlook
Population change is the primary component in tracking Bu alo County’s past patterns of
development as well as predicting future trends. Population characteristics such as size,
distribution, and density trends should be monitored to plan for housing, educational, utility,
community and recreational facility needs as well as its future economic development.

Population History: On average, Bu alo County’s population has decreased by 1.7% for
each decennial census since the county’s population reached its peak of 16,765 inhabitants in
the year 1900. Nonetheless, some censuses have reported population increases as high as
5.0% and decreases as low as -8.5% over a ten-year period between 1900 and the present. In
the twenty years between the 2000 and 2020 censuses, Bu alo County’s population fell by
487, or -3.53%.
Table 1.1 Regional Population Projections
2010
Cens.

2020
Cens.

2024
Est.

2030
Projec.

2040
Projec.

2050
Projec.

Chg.
‘20-‘50

%Chg.
’20– ‘50

Bu alo
Dunn
Eau Claire
Jackson

13,587
43,857
98,736
20,449

13,317
45,440
105,710
21,145

13,234
45,693
110,871
21,337

12,520
45,565
110,405
21,185

11,645
44,470
114,945
21,690

10,675
42,475
118,625
22,620

-2,642
-2,965
+ 12,915
+ 1,475

- 20%
-7%
+ 12%
+ 7%

Pepin
Pierce
St. Croix
Trempealeau
Wabasha*
Winona*

7,469
41,019
87,123
28,816
21,672
51,432

7,318
42,212
93,536
30,760
21,642
50,485

7,360
42,605
98,849
30,912
21,576
50,880

6,855
41,375
97,775
32,660
21,453
50,545

6,325
39,500
102,820
36,325
20,889
49,135

5,755
36,770
102,980
41,185
19,933
46,799

- 1,563
-5,442
+ 9,444
+ 10,425
-1,709
-3,686

- 21%
- 13%
+ 10%
+ 34%
-8%
-7%

US Dept. of Commerce-Bureau of the Census with WI Dept. of Administration projections.
*Projections and estimates obtained from a separate study conducted by the Minnesota State Demographic Center

Population Projection: State projections anticipate a significant decline in the county’s
population over the next 25 years. Bu alo County is expected to have ~10,675 residents by
2050 (WI DOA, 2024). This is 2,642 residents less than counted in the 2020 census or 20%.
7

Housing

Neighboring Trempealeau and Eau Claire are projected to grow, opening a potential for
spillover along state highway corridors. See the appendix for population projections at the
town, city, and village level.

Age composition: The years 2015–2020 saw growth in ages 65–69 and 80–84 and declines
in many other age categories. Projections indicate declines across all cohorts under age 74 by
2050, with growth only in 75+. Service implications include increased demand for EMS,
healthcare access, and senior appropriate housing, while sustaining amenities for remaining
youth and working age populations.
Table 1.2 County Population by Age Group
Age
2015
2020
2030
Group Estimate Census Projection
0-4
5-9
10-14
15-19
20-24
25-29
30-34
35-39
40-44
45-49
50-54
55-59
60-64
65-69
70-74
75-79
80-84
85+

722
816
796
811
643
697
691
660
821
955
1085
1022
1007
707
703
521
311
351

689
761
826
767
601
645
735
786
702
744
896
1,075
1,108
994
769
530
382
307

635
655
720
730
545
565
695
715
750
775
685
735
870
1,015
910
740
465
315

2040
Projection

2050
Projection

’20 – ’50
Di er.

’20 – ’50
% Di er.

595
595
680
635
485
550
645
635
720
715
745
775
680
705
730
780
575
400

515
545
635
580
455
480
575
615
670
640
725
715
740
745
570
545
460
465

- 174
- 216
- 191
- 187
- 146
- 165
- 160
- 171
- 32
- 104
- 171
- 360
- 368
- 249
- 199
15
78
158

- 25 %
- 28 %
- 23 %
- 24 %
- 24 %
- 26 %
- 22 %
- 22 %
-5%
- 14 %
- 19 %
- 33 %
- 33 %
- 25 %
- 26 %
3%
20%
51 %

US Dept. of Commerce-Bureau of the Census with WI Dept. of Administration projections. Projected % change applied to 2020 census data.

Race and Ethnicity: The County remains predominantly White (~95%) with small but
growing diversity (multiracial and Hispanic shares increasing). See the appendix for a specific
breakdown of county racial/ethnic populations.

Income and Poverty: Per capita income is ~$36,164; median household income ~$68,722.
While these figures are below both Wisconsin and U.S. values, the poverty rate (~10.2%) is
slightly lower than state and national average.

Housing

8

Table 1.3 Per Capita Income Comparison
Bu alo
County
5,692

Wisconsin

USA

2,446,028

127,482,865

Per capita income in the past 12 months (2023 dollars),
2019- 2023
Median household income (in 2023 dollars), 2019- 2023

$ 36,164

$ 42,019

$ 43,289

$ 68,722

$ 75,670

$ 78,538

Percent of persons below poverty level*

10.2%

10.7%

11.1%

Households (2019 – 2023)

U.S. Census Bureau- 2023 American Community Survey, 5-Year Estimates | B19301, B17013, & S1903
*Dollar amount of poverty not available. US Census Bureau

Education: ~92% of residents over the age of 25 have a high school diploma or higher;
degree attainment profile indicates opportunities for targeted workforce and credentialing
strategies. County residents are slightly more likely to hold an associate’s degree than
residents statewide.
Table 1.4 Education Attainment
Bu alo County

Wisconsin

Number

%

Number

%

Population 25 years and Older
Less than 9th Grade

9,759
218

100.0%
2.2%

4,069,583
96,291

100.0%
2.4%

9th to 12th grade, no diploma

564

5.8%

173,140

4.3%

High School Graduate (or equivalency)

3,722

38.1%

1,207,407

29.7%

Some college, no degree

1,739

17.8%

803,852

19.8%

Associate’s degree

1,360

13.9%

455,765

11.2%

Bachelor’s degree

1,563

16.0%

879,907

21.6%

Graduate or Professional

593

6.1%

453,221

11.1%

U.S. Census Bureau- 2023 American Community Survey, 5-Year Estimates | S1501

Commuting and Labor Force: About 43.9% of working residents are employed in county;
32.2% commute to other Wisconsin counties; and 23.9% commute out of state. Of the 11,048
individuals over 16 years of age, labor force participation is ~63%, with low unemployment (US
Census Bureau 2023).

9

Transportation

Employment and Industry: Since most residents work outside of Bu alo County, there
are significant discrepancies between the types of industries in Bu alo County (employers)
and the skill sets of those living here (labor force).
In 2023, there were 3,695 jobs in Bu alo County while there were over 6,960 people in its labor
force. Over half of the county’s labor force worked in just three industry categories: the
educational services, health care and social assistance industry (22.2%), the manufacturing
industry (19.8%), and the retail trade industry (9.9%) / agriculture, forestry, fishing & hunting,
and mining industry (9.5%). Only one of these industries are dominant in Bu alo County itself.
When it came to industries o ering employment within Bu alo County, the top three were the
trade, transportation, and utilities industry (31.4%), the education and health services industry
(17.6%), and the leisure and hospitality industry (9.7%). Tables detailing these statistics can
be found in the appendix (US Census Bureau).
While most commute outside of the county to work, employment opportunities within Bu alo
County remain critical for its residents. Using the data above, it is estimated that county
residents fulfilled ~83% of industry labor needs within their home county in 2023.
Job Trends- From 2018-2023 Bu alo County had a net loss of 117 local jobs (-3.1%). The trade,
transportation, and utilities industry accounted for a majority of this decrease, losing 122 jobs
over the five-year period. Looking at this five-year change, Bu alo County hasn’t recovered to
pre-pandemic employment numbers. (WI DWD, 2025)
Over the 2018-2023 period, the greatest numeric increase in jobs was in natural resources and
mining, showing an increase of 63 jobs over the five-year period. While the fastest-growing
industry was in ‘other services’, adding 17 jobs for a 41.5% increase.
Employment Projections- The WI Dept. of Workforce Development (WI DWD) makes
employment projections for regions called Workforce Development Areas (WDA). Bu alo
County forms the northwest edge of the Western WDA (centered on La Crosse and Tomah) but
certainly has exposure to the West Central WDA (EauClaire and Rice Lake) and Minnesota’s
Southeast Economic Development Region (Winona and Rochester). Being on the edge of these
regions can make employment projections specific to Bu alo County di icult to estimate.
Despite the recent decline of local job numbers in Bu alo County, the WI DWD projects that
together the regional Western and West Central WDAs will add over 34,500 new jobs (9.1%)
between 2022 and 2032. Together, the education and health service industry and trade,
transportation, and utilities industry make up the bulk of projected growth (42%).
Manufacturing in these WDAs is expected to grow by 5.9% while natural resource and mining
jobs are expected to grow by 8.5%. Rather than job growth, southeastern Minnesota has
opportunities for Bu alo County residents to fill replacement openings as their population
ages out of the workforce.
Housing

10

2
A Place to Call Home
Housing in Bu alo County

Figure 2.1 A double wedding at the family home of the grooms (Bu alo County Historical Society, 1898)

Element Overview
Housing element. A strategy to provide an adequate housing supply that meets existing and
forecasted housing demand in Bu alo County. This element assesses the age, structural,
value and occupancy characteristics of the local governmental unit’s housing stock. It also
identifies specific policies and programs that promote the development of housing for
residents while providing a range of housing choices that meet the needs of persons of all
income levels and of all age groups and persons with special needs, policies and programs
that promote the availability of land for the development or redevelopment of low-income and
moderate-income housing, and policies and programs to maintain or rehabilitate the county’s
existing housing stock as per Wis. Stat. § 66.1001(2)(b).

11

Transportation

Existing Conditions

OwnerOccupied

RenterOccupied

Households with
individuals under
18

Households with
Individual over 65

Vacant
Household

Vacant household:
for rent

Vacant
Households:
for sale

T. of Alma

118

99

15

21

48

48

0

0

254

T. of Belvidere

174

161

11

33

76

49

0

2

403

T. of Bu alo

312

281

26

73

120

31

0

0

746

T. of Canton

105

86

21

22

47

3

0

0

245

T. of Cross

146

126

18

53

46

20

2

0

368

T. of Dover

175

143

38

70

52

21

1

0

515

T. of Gilmanton

169

129

19

52

57

23

0

0

425

T. of Glencoe

169

142

13

45

75

18

1

0

402

T. of Lincoln

78

67

6

14

32

20

0

0

167

T. of Maxville

128

115

28

31

49

15

0

0

321

T. of Milton

222

206

10

44

96

39

5

1

541

T. of Modena

118

91

21

31

49

34

1

2

313

T. of Mondovi

190

161

25

49

59

20

0

0

451

T. of Montana

97

90

5

32

36

17

0

2

268

T. of Naples

260

220

21

87

73

6

2

0

697

T. of Nelson

238

215

33

36

110

48

5

1

574

T. of Waumandee

183

183

15

47

63

32

5

2

508

C. of Alma

347

214

146

60

156

132

31

1

716

C. of Bu alo City

474

415

29

93

201

81

0

8

1,007

C. of Fountain C.

394

247

129

79

155

48

27

5

806

C. of Mondovi

1,210

721

503

351

404

79

18

2

2,845

V. of Cochrane

203

133

44

58

67

19

6

0

423

V. of Nelson

157

106

58

38

63

36

8

3

322

Bu alo County '20

5,667

4,331

1,336

1,435

2,134

839

112

37

13,317

Population

Occupied

Table 2.1 Housing Units and Population- 2020

US Census Bureau| 2020 Decennial Census| DP1

Housing

12

Density and Distribution of Housing: Bu alo County’s rural character is marked by its
low population. Having a population density of less than 20 people/ square mile, Bu alo
County is the most sparsely populated county among all its neighbors (WI&MN). Housing
density in the county is 9.7 houses per square mile. Low density preserves rural character but
increases service costs per unit of housing when development is di use.
The distribution of Bu alo County’s housing stock is split nearly evenly between its
incorporated cities/villages and its unincorporated towns; however slightly more residents live
in unincorporated areas of the county (~55%). This imbalance could be caused by
cities/villages, in general, experiencing population decline at a faster rate than towns.

Housing Stock and Trends: There were 6,506 housing units at the time of the 2020
census; estimated to be 6,616 in 2025. If this estimate is correct, this could indicate an uptick
in housing development following a decline between 2010 and 2020. As housing units are
estimated to have recently increased in number, so have the number of unoccupied (vacant)
housing units.
One-half of all homes in the county were built before 1970, making the potential for nearly
2,000 homes to approach 100+ years of age during the plan period. This creates both
a ordability opportunities (lower purchase price) and rehabilitation needs (energy, safety,
accessibility).
Table 2.2 County Comparison of Age of Housing Units
Year Structure
Built

Wisconsin

Bu alo
County

Jackson
County

Pepin
County

Pierce
County

Trempealeau
County

Built 2020 or later
Built 2010 to 2019
Built 2000 to 2009
Built 1990-1999
Built 1980-1989
Built 1970-1979
Built 1960-1969
Built 1950-1959
Built 1940-1949
Built 1939 or earlier

0.8%
6.7%
12.3%
12.9%
9.5%
14.3%
9.6%
10.4%
5.4%
18.1%

0.3%
4.4%
12.1%
10.6%
7.5%
15.0%
8.4%
8.3%
7.1%
26.2%

0.5%
7.3%
18.1%
13.3%
8.7%
13.5%
8.2%
7.1%
3.8%
19.6%

0.6%
4.7%
15.4%
7.6%
8.1%
13.9%
8.2%
9.1%
6.6%
25.7%

1.3%
7.4%
17.0%
12.3%
11.4%
15.4%
7.8%
5.8%
3.2%
18.6%

0.7%
8.3%
12.5%
14.6%
8.3%
14.7%
7.5%
6.9%
5.3%
21.1%

Total Housing Units

2,750,750

6,546

9,693

3,603

17,052

13,373

US Census Bureau| 2023 5 Year Community Survey| DP04

Tenure and Income: Housing in Bu alo County is primarily owner-occupied; 72%
compared to 53% across Wisconsin (2023 Estimates). While Bu alo County has a significantly
smaller proportion of rented housing units than the state average, the county has a notably
higher concentration of lower income renters.
13

Transportation

Table 2.3 Occupied Housing Units Versus Income in Bu alo County- 2023
Total

Owner Occupied

Renter Occupied

Occupied Housing Units

5,692

4,458

1,234

Housing needs with income < $35,000

1,233

768

465

Housing needs with income > $35,000

4,279

3,674

605

Total Housing Unit Available

6,546

Balance of Housing Units available

854

US Census Bureau| 2023 5 Year Community Survey| B25106 & DP04

Like the rest of the state, about half of renters had annual household incomes less than
$50,000 in 2020; However, more than a quarter of all renters in Bu alo County made less than
$20,000 annually, exceeding state averages. Most households owning their own home in
Bu alo County earned more than $75,000 annually in 2020. About 29% earned less than
$50,000.
Table 2.4 Household Income in 2023 Inflation-Adjusted Dollars- COMPLETE
% of Homeowners

% of Renters*

Wages

Bu alo County

Wisconsin

Bu alo County

Wisconsin

Less than $20,000

8.8

5.5

25.4

18.9

$20,000 to $34,999

8.9

7.5

12.2

16.8

$35,000 to $49,999

11.4

8.6

15.2

15.2

$50,000 to $74,999

18.2

16.9

19.4

19.0

$75,000 or more

52.8

61.4

14.3

26.1

US Census Bureau| 2023 5 Year Community Survey| B25106

A ordability at the National Level: Wages have doubled over the past 25 years (up
105%) and o er more purchasing power for everyday consumer goods (costs up 80% since
2001). But these gains for the employees and consumers have been overshadowed by
healthcare and home prices that have nearly tripled during the same time period- up 187%+
and 200% respectively (Federal Reserve Economic Data & Case-Shiller National Home Price
Index 2026). This has created a higher threshold to cross for those trying to purchase their first
home.

A ordability at the County Level: Bu alo County ranked in the 90th percentile for
housing a ordability (Forward Analytics 2024) with an average home price of $245,000
compared to the state’s $310,000 (WI Realtors Association 2024). This has been fortunate
considering that residents had an average household income 12% lower than the state average
Housing

14

(USBEA 2023). Because of the availability of a ordable low-income housing in the county,
middle’ income residents tend to be the economic group most burdened by housing costs.
The 2020 census found 1 in 4 homeowners in Bu alo County were housing-cost-burdened,
meaning they devoted more than 30% of their household income to housing. Statewide, about
1 in 5 homeowners shared the same burden. Though less than the state average, slightly more
than half of homeowners in the county enjoyed housing costs <20% of income.
Bu alo County was in lockstep with the rest of the state when it came to the proportion of
income spent by renters on housing, with one exception. Bu alo County experienced lower
rates of renters burned by housing costs. About 1 in 3 renters in the county spent more than
30% of their income on housing in 2020, compared to 1 in 2.5 across the state. This may be
due to Bu alo County’s predisposition not to charge any cash rent to a notable portion of its
renters. Nearly 1 in 7 renters paid no cash rent in 2020, 3X higher than the state average.

Housing Access: About 1 in every 8 housing units in Bu alo County were estimated to be
vacant in 2023- a growing trend over the past two decades. Over half of these unoccupied
dwellings are used for seasonal recreation. The percentages of homes vacant or used for
recreation was just slightly higher than the state average, but as recent as 2010 the ratio of
vacant and recreational dwellings was below the state average.

Permit activity: There has been growing permit activity for homes in Bu alo County. An
average of 24.8 zoning permits for new, replacement, and trailer homes were issued annually
from 2019-2023, compared to 20.5 from 2009-2012. This is an increase of 21% despite the
towns of Waumandee and Montana no longer being part of the total since leaving county
zoning in 2018.
While homes saw an increase, permits for recreational dwellings declined 68% between the
two time periods. ‘Recreational’ dwellings typically have no plumbing or electricity. Perhaps
less dwellings are being built for recreation, or could this decline be thanks to changing
preferences of recreational landowners desiring a vacation home rather than a ‘cabin in the
woods?’

15

Transportation

Needs and Demand 2026-2046
Housing Forecasts: If recent trends continue (2020-2025 DATCP Housing Estimates),
Bu alo County could see more homes with less residents over the next 20 years. Here’s why:
Senior Housing: Residents over the age of 75 are much more likely to live alone. Those born
between 1956 and 1966 make up Bu alo County’s largest age group. The county can expect to
have more than 500 additional residents over the age of 75 by 2040 as these individuals age
over the next quarter-century (a 44% increase from 2020). This projection assumes that the
county’s aging populations will remain residents of Bu alo County and won’t move as their
needs change.
Housing that o ers shared common areas, transportation services, and a close proximity to
healthcare facilities can be attractive to older adults and their families. However, senior living
options that o er these amenities in and near Bu alo County are limited, especially given the
potential for future demand. Rather than focusing on the construction of new facilities to meet
this short-term boom of demand, it may be wise to encourage aging in place and multigenerational housing options.
Empty Homes: Homes are being built for purposes other than housing residents. Non-resident
landowners in Bu alo County increasingly desire living quarters on their recreational
properties that have the amenities of a full-time home. Nearly half of all vacant homes in
Bu alo County are vacation/seasonal homes (2023 USCB). In some cases, these vacation
homes are also used as short-term rentals (a.k.a. tourist rooming houses).
Housing

16

Smaller (/less) families: Fueled by declining birth rates, population is projected to decline by
20% over the next two and a half decades. If this trend is driven by more residents remaining
single throughout their lives, more housing units may be required per capita than exists today.
More resources devoted to less e icient living arrangements could result in more expensive
housing for those that do start families in Bu alo County. This is why maintaining the county’s
abundant stock of a ordable (and often quite old) single-family dwellings may be important in
the coming decades.
Rehabilitation and Weatherization: Bu alo County the highest percentage of pre-1970
homes of all surrounding counties. While these time-tested homes tend to be more a ordable
up front, they often present hazards that may need to be addressed. A few potential hazards
could include: lead paint, asbestos, polluted wells, failing septic systems, and faulty wiring.
While rehabilitating these homes can be costly, significant long-term savings can be achieved
if they are also brought up to modern energy e iciency standards. Prioritizing support for
hazard remediation in homes as well as updates to insulation and heating systems
Keeping Infrastructure in Mind: Bu alo County had the 4th highest highway spending per
capita (2023) and a property tax rate higher than 2/3 of Wisconsin’s 72 counties (2024/2025).
Encouraging future development to occur near existing infrastructure can help to use
resources more e iciently and reduce further strain on the tax base.
Impacts on Natural Resources: Since 2018, Bu alo County’s zoning ordinance has contained
added protections for prime farmland, steep slopes, and blu lands. Of the 140 zoning permits
for dwellings from 2019-2023, 45 permits (32%) were issued for dwellings that were built within
100 yards of a sensitive natural area such as a blu or a stream. The Department of Land
Management analyzed its previous performance during this 5-year time frame and found that 6
dwellings were likely placed in a location that was not in compliance with a county ordinance
that protects these natural areas.
This proximity of housing development to sensitive natural areas was also analyzed based on
the residency status of the landowner. Landowners that were not residents of Bu alo County
were more than 2x as likely as residents to construct a dwelling within 300’ of a sensitive area.
In fact, more than half of all dwellings constructed on properties owned by nonresidents were
built within this zone. Of the 6 potential noncompliant dwellings previously mentioned, all
potential infringements on blu impact areas were on property owned by nonresidents while
both cases of possible shoreland impact area violations were on properties owned by
residents. This reflects the tendency of residents to build in valleys nearer to streams and the
bottom of blu s and nonresidents to build on ridges near the crest of the blu .

17

Transportation

Programs to Support Housing in Bu alo County: Bu alo County’s residents and developers have
access to a variety of housing support programs at the federal, state, regional, and local level. These
range from guaranteed loans to home repairs and senior housing opportunities. If you or your
community would benefit from housing support, a table displaying available programs is included at
the end of this chapter.

Goals and Objectives
Promote Home Ownership for the Residents of Bu alo County
Remind residents of opportunities of loans through USDA Rural Development as well as
income eligibility. VA O ice continue to serve as an advocate for veterans looking to purchase
a home
Encourage towns to work with the county to ensure rental properties (short-and long term) are
compliant with zoning and health department standards. For properties that fail to meet these
standards enforcement could lead to a transfer of property for those unwilling to make
necessary changes.

Preserve and Rehabilitate Current Housing Stock
Advocate for more funding to the Community Development Block Grant. Maintain a consistent
voice in Bu alo County.
Prioritize middle income communities

Prevent Conflicting Land Uses in Residential Areas
Encourage towns to use bu ers around land uses that may be in conflict with agriculture. For
example, placing the ANRT-5 district around residential and commercial districts.
Remind those in agricultural areas of Wisconsin’s Right to Farm Law.

Housing

18

Housing Programs Available in Bu alo County
Service/Program
Federal Programs
HUD
Housing &
Urban
Development

FHA
Federal Housing
Authority
USDA-RD
US Department
Of Agriculture
Rural Development
VA
Veteran’s Affairs

State Programs
WHEDA
WI Housing &
Economic
Development
Authority

DOA – Division of
Housing

19

Description

Contact Information

Establishes and enforces fair
housing law. Administers programs
including mortgage insurance
assistance; development,
rehabilitation, and modernization of
public housing; multifamily housing
development; and provides rental
subsidies to lower-income families.
Provides mortgage insurance on
single-family, multifamily, and
manufactured homes through
approved vendors.

Milwaukee Field Office, 310
West Wisconsin Avenue,
Suite 1380, Milwaukee, WI
53202-2289; Phone: (414)
297-3214; Fax: (414) 9356775; TTY: (414) 297-1423;
Toll-free: (800) 955-2232.

Provides financial support in rural
areas for public facilities like sewer
and water as well as assistance in
development/purchase of single and
multifamily housing for rural
residents and migrant farm labor.
Offers purchase loans at competitive
interest rates, loan guarantees
(similar to a co-signer), and
refinancing programs to provide
cash from home equity for certain
personal pursuits.

Wisconsin Guaranteed Rural
Housing (GRH) Program;
Email: [email protected]; Phone:
715-345-7623

Uses the sale of revenue bonds to
provide low-cost, fixed-rate
mortgages to low- and moderateincome individuals/families to
purchase their first home. Also
works with developers to finance
affordable rental housing and
support economic development and
agriculture through small business
guarantee programs.
Offers financial and technical
assistance to improve and expand
housing, increase affordable housing
opportunities and provide services
to people with disabilities, without
housing, and/or a low to moderate
income.

Email: [email protected]; In
WI: 1-800-334-6873.
Madison office:
201 W. Washington Ave., Ste
700, Madison, WI 53703 or
P.O. Box 1728, Madison, WI
53702-1728;
Phone: 608-266-7884; Toll
Free: 800-334-6873

FHA Resource Center; Tollfree: (800) CALL-FHA (800225-5342); TTY: (800) 8778339.

VA Benefits Hotline:
800-827-1000
https://www.va.gov/housingassistance/

Division of Housing, 101 E.
Wilson Street, 5th Floor,
Madison, WI 53703; Phone:
608-266-7531; doa.wi.gov

Transportation

Western
Dairyland

Senior Housing and
Adult Care
Garlick’s CBRG
INC

Hillview Senior
Living

Home Place of
Mondovi

Mondovi Housing

Step By Step Adult
Family Home
Troy’s Adult
Family Home

Housing

Home buyer education and down
payment assistance to Buffalo
County residents who meet certain
income criteria. Education
processes meet USDA/Rural
Housing, WHEDA and FHA
requirements for homebuyers.

Main Office:
23122 Whitehall Road
Independence, WI 54747
715-836-7511
[email protected]
westerndairyland.org

Founded in 1985 and currently has 4
adult family homes, 1 CBRF, and 2
Assisted Living Apartments. A
Community Based Residential
Facility Incorporated creating a safe
home environment where every
resident has the opportunity to
develop their lives while enhancing
their independence.
A 12-unit Community Based
Residential Facility (CBRF), licensed
by the State of Wisconsin and
located on the 1st Floor of the
American Lutheran Home in
Mondovi. Provides a supportive
environment for individuals who
need assistance with daily living
tasks.
Offers independent and assisted
living apartments to seniors 55 years
old and older. Memory care provides
the opportunity for all stages of
dementia and accommodates the
frail elderly.
Available to individuals or couples
ages 62 and older who meet income
based qualifications. Rent is based
upon a percentage of income, not
assets after medical expenses.
There is an application process and
nearly always a waiting list for
apartments.
A licensed 24-hour senior care
facility with four beds.

539 N. Eau Claire Street,
Mondovi, WI 54755
715-926-5818.

A licensed 24-hour senior care
facility with capacity for four
residents.

210 Memorial Drive, Mondovi,
WI 54755;
715-926-4962

158 E Main Street,
Mondovi, WI 54755
Homeplace Haven:
715-926-4740
Homeplace LLC:
715-926-4777
600 Buffalo Street,
Mondovi, WI 54755
715-926-4943
[email protected]

637 West Hudson Street,
Mondovi, WI 54755
715-926-5898
649 N. Eau Claire Street,
Mondovi, WI 54755
715-926-5828

20

3
Traversing Ridge, River, and Valley
Transportation in Bu alo County

Looking South on the BNSF Railway in the City of Alma. ( Photo Credit: Roy Luck, 2014)

Element Overview
Transportation element. A means to guide the future development of the various modes of
transportation, including highways, transit, transportation systems for people with disabilities,
bicycles, electric scooters, electric personal assistive mobility devices, walking, railroads, air
transportation, trucking and water transportation. The element compares Bu alo County’s objectives,
policies, goals and programs to state and regional transportation plans while identifying highways
within the local governmental unit by function. State, regional and other plans, including transportation
corridor plans, county highway functional and jurisdictional studies, urban area and rural area
transportation plans, airport master plans and rail plans that apply in Bu alo County are also
incorporated as per Wis. Stat. § 66.1001(2)(c).

17

Transportation

Existing Transportation System
Network Overview: The system is multimodal, but internal movement of people and goods
is dominated by highways. Rail and water follow the Mississippi corridor; regional commercial
air service is nearby in Eau Claire and La Crosse.
Air: Regional air service is available at La Crosse Regional Airport and Chippewa Valley Reginal
Airport. Three small private airports operate in Bu alo County: Durand Municipal Airport in the
Town of Maxville, Log Cabin Airport in the Town of Naples, and The Farm Airport in the Town of
Dover.
Rail: BNSF Railway operates dual mainline tracks along the Mississippi River. It is a major
east-west national route connecting Chicago to the east and Minneapolis-St Paul to the west.
Primary rail customers in Bu alo County are Dairyland Power Cooperative in Alma and La
Crosse Milling Company in Cochrane. There are small maintenance facilities in Nelson, Alma,
Fountain City, and Blu Siding. Canadian National Railway operates a branch line from Arcadia
to Marshland, where it connects with the BNSF mainline.
Water: The inland waters of the Mississippi River carve along the western edge of Bu alo
County. This waterway connects Minneapolis-St Paul and the Upper Midwest ports to world
markets via commercial barge tra ic. Except for the coal port at Dairyland Power Cooperative in
Alma, there are no other ports in Bu alo County. The closest port is in Winona, Minnesota.
Bicycle/Trail Facilities: The Bu alo River State Trail starts in Mondovi and runs for 6.5 miles in
Bu alo County, continuing to Fairchild in Eau Claire County. The Great River State Trail ends at
Marshland in the Trempealeau National Wildlife Refuge, on the boundary with Trempealeau
County, running to La Crosse and connecting to further trails. The Flyway Trail is still in
development. Phase 1 is complete, 1.8 miles from Town of Bu alo Park to Aghaming Park Road
in the Upper Mississippi River National Wildlife and Fish Refuge, which connects to Minnesota
via the Historic Wagon Bridge to Latsch Island and highway bridge to Winona. Phase 2 is under
construction in 2025, connecting the Flyway Trail to the Great River State Trail. The next
proposed phase would extend the Flyway Trail farther north along State Road 35, and
eventually connect to other trails, perhaps in Durand. A network of snowmobile trails are
maintained on mostly private lands by local snowmobile clubs using DNR snowmobile
registration funds.
Interstate Bridges at Wabasha and Winona: Local residents rely heavily on these two
interstate bridges. Because of the rural nature of the county and the distance to Wisconsin
urban areas like Eau Claire and La Crosse, many Bu alo County residents depend on access
provided by these two Mississippi crossings. This reliance ranges in importance from
emergency medical services and jobs to commerce and entertainment. This reliance goes both
ways as Minnesota businesses depend on customers in Wisconsin.
Transportation

18

Roadways: There are 1,038 total miles of public roads in Bu alo County. This system is
maintained by the Wisconsin Department of Transportation (DOT), Bu alo County Highway
Department, and the various cities, villages and towns within the county. While the regional
transportation system is truly multimodal, it is the roadway network of Bu alo County that
moves the people and goods throughout the county. This network receives a substantial level
of public investment to maintain the system. Budget restraints will continue to pose a
challenge for the continued level of service across all jurisdictions. To assist in inventorying,
classifying, and planning e orts regarding the roadway network a Road Functional
Classification System has been established.

Road Functional Classification System
Roadways serve two primary travel needs: access and mobility. Access provides opportunities
to enter and exit destinations, while mobility focuses on e icient travel over longer distances.
Roadways are divided into three roadway functional classifications:

Arterials- O er fast travel, often connecting larger urban areas and linking smaller
transportation systems to each other. Tend to carry heavy tra ic volumes and large
vehicles from commercial and industrial areas.
Collectors- Balance speed with accessibility, joining local roads to arterials. Often provide
service to medium-sized communities and are vital to local industries.
Locals- Prioritize access rather than speed. Service homes, businesses, and other
destinations.
Functional classifications are important because they are used to determine funding program
eligibility. Fortunately for Bu alo County, tra ic volume alone does not determine functional
classification. The DOT’s Bureau of Planning and Economic Development tries to review and
update the state’s entire functional class system every 10 years, using data from the new
census. Factors most important to determining the functional class of a roadway include:
mileage percentages, arterial continuity issues, changes in development within the
community, new roadways or road configurations, changes in tra ic volume, urban area
boundary adjustments, and population changes.
After reviewing these criteria, the WI DOT follows US Department of Transportation procedures
to draft proposed changes on a map and then presents the proposed functional classification
updates to local o icials. Local o icials can concur with the proposal or request revision using

19

Transportation

input such as data from contracted tra ic volume surveys. The last update to Wisconsin’s
functional classification system was completed in 2022.

It is currently DOT’s policy to align jurisdictional responsibilities with functional classifications
whenever possible. For example: arterials should be state or federal highways while collectors
are county highways and local roads are ‘owned’ by towns, cities, or villages. The 2013
Comprehensive Land Use plan argued that “Bu alo County has many discrepancies between
the functional road classifications and the proper jurisdictional alignment.” The writers
suggested that by realigning the functional classes of Bu alo County’s roadways to the proper
jurisdictional responsibilities, more appropriate levels of service and funding can be allotted to
each of the county’s roadways- so long as any transfers are mutually agreed upon by both
jurisdictions involved.

Wisconsin Asset Management Systems
Bu alo County uses the Pavement Surface Evaluation and Rating System (PASER) that is
incorporated into the Wisconsin Information System for Local Roads (WISLR) program to
evaluate and inventory the highway system as a tool for implementing a five-year maintenance
and improvement plan. This plan is reviewed and adjusted annually by the Bu alo County
Highway Committee. The Highway Department also assists most towns within the county for
the physical inventory and record keeping for their systems. PASER ratings are updated every
year on the county system and every other year on the town system. The most important
element of the PASER and WHISLER programs is to maintain the history of all improvements
on the system.

Wisconsin Department of Transportation Local Bridge Program and Inventory
Bu alo County Highway Department manages the inventory and inspections of all local
bridges (county, town and city) within Bu alo County. The current inventory includes 173
inspected structures that are eligible for Federal Aid replacement funds. This program is
significant in e ort and importance due to the large number of structures maintained on the
system. Map 3.4 Bu alo County Bridge Locations, shows our current bridge inventory.

Transportation

20

State and Regional Transportation Plans
The Wisconsin DOT published a comprehensive transportation plan called Connect 2050 in
May 2022. It is Wisconsin’s Statewide Long-Range Transportation Plan, designed to meet the
state’s transportation needs for the next 20 years, following their previous plan from 2009,
Connections 2030. One potential problem with the plan is that it is based on 2013 population
projections, which estimated that the population would increase to almost 6.5 million by 2040.
The newer Wisconsin population projection from 2024 estimates that the population will
decrease to 5.8 million by 2050, and further decrease to 5.7 million by 2050. The newer
projections also predict that the portion of the population over age 65 will increase more, to a
larger share of the overall population than previous projections.

Besides the primary Connect 2050 plan, the DOT has several other plans on specific aspects of
the transportation system, either published recently or still in progress:








Wisconsin State Airport System Plan 2030 (Feb 2015)
Transportation Asset Management Plan (Apr 2023)
Wisconsin Rail Plan 2050 (Jul 2023)
Wisconsin State Freight Plan (Jul 2023)
Strategic Highway Safety Plan: 2023-2027 (Dec 2023)
Active Transportation Plan 2050 (in progress); combines bicycle and pedestrian plans

Wisconsin Four-Year Highway Improvement Program (STIP): the more specific construction
programs for the Wisconsin DOT through 2028. See Map 3.5 Wis Dot Improvement Program and
Table 3.2 Wisconsin DOT 2025- 2028 Six Year Highway Improvement Snapshot for the current
Four-Year Program. The most recent versions of Map 3.5 Table 3.2 can be found at the
Wisconsin DOT website: https://wisconsindot.gov/Pages/doing-bus/local-gov/astncepgms/highway/stip.aspx

21

Transportation

Table 3.2 Wisconsin DOT 2025-2028 Four-Year STIP Snapshot
Hwy
B
OO
P

Project Title
And Limits
STH 37 Gilmanton
Czechville Alma
STH 95 Marshland

Miles
2.56
5.45
0.02

35

Alma - Pepin

0.00

35

Fountain City Alma

0.06

35

Alma - Pepin

1.64

35

Trempealeau Alma

8.58

35

Alma - Pepin

0.00

37

Alma Mondovi

3.47

37
37
37
54
95

Alma Mondovi
Alma Mondovi
Alma Mondovi
Winona Galesville
Fountain City Arcadia

1.30
2.10
4.90
0.65
9.45

Estimate
(Range)
$1,000,000 $1,999,999
$250,000 $499,999
$1,000,000 $1,999,999
$100,000 $249,999
$750,000 $999,999
$1,000,000 $1,999,999
$6,000,000 $6,999,999
$30,000,000 $34,999,999
$12,000,000 $12,999,999
$750,000 $999,999
$1,000,000 $1,999,999
$2,000,000 $2,999,999
$250,000 $499,999
$100,000 $249,999

Year
2026
2025
2025
2026
2026
2027
2027
2028
2026
2026
2026
2027
2027

Work
Type
Construction
/PVRPLA
Design - Full PS&E/
PVRPLA
Construction/Bridge
Replacement
Real Estate
Acquisition
Construction/
BRRHB/Concrete
Overlay
Construction
/Resurface
Construction
/Resurface
Construction/BRRPL
Construction
/Pavement
Replacement
Construction/Local
Utilities
Construction/Culvert
Replacements
Construction
/Resurface
Construction
/Resurface

Project Description
STH 37 to STH 88
Prairie Moon Road to STH 35
Trempealeau River bridge B-06-0238
B-06-0898,0899,0900,0901,0902,0903
Waumandee Creek bridge B-06-0059
S jct Riverview Dr to Bu alo River
Old STH 35 to Indian Creek Rd
B-06-0242,0243,0244,0245,0246,0247
STH 88 to USH 10
STH 88 to USH 10
C-06-4588, 4589, 4592, 4594, 4597

Design - Full PS&E/
Resurfac
e

STH 35 to CTH F
MN/WI state line to STH 35
CTH G to CTH A

2025-2028 Statewide Transportation Improvement Program Project Listing: Northwest Region (p. 337)

Transportation

22

Other Plans
Wisconsin State Trails Network Plan: encouraging regional and local trail links to the statewide trail
system.
Bu alo County Transit-Human Services Transportation Plan: planning the coordination of publicly
funded transportation services in Bu alo County.
Bu alo County Outdoor Recreation Plan: In reviewing the Regional Plans listed above, no
inconsistencies were evident between any regional plan and Bu alo County goals.

Goals and Objectives
Maintain and preserve the existing roadway network
Strengthen partnerships by normalizing communications & expectations between the Bu alo County
Highway Department and the Towns.

Balance tourism infrastructure with local needs
O er the towns and their local residents a chance to speak on tourism projects, e.g. bike trails.

23

Transportation

Transportation

24

25

Transportation

Transportation

26

27

Transportation

4
Providing Necessities
Utilities and Community Facilities of Bu alo County

Figure 4.1 Proposed wastewater treatment facility for the City of Mondovi. Construction began in 2021. (Clearas
Water, 2019)

Element Overview
Utilities and Community Facilities Element. Addresses the future development of utilities and community
facilities in Bu alo County such as sanitary sewer service, storm water management, water supply, solid waste
disposal, on-site wastewater treatment technologies, recycling facilities, parks, telecommunications facilities,
power-generating plants and transmission lines, cemeteries, health care facilities, childcare facilities and
other public facilities, such as police, fire and rescue facilities, libraries, schools and other governmental
facilities. The element describes the location, use and capacity of existing public utilities and community
facilities that serve the county, and includes an approximate timetable that forecasts the need in the local
governmental unit to expand or rehabilitate existing utilities and facilities or to create new utilities and facilities
and shall assess future needs for government services in the local governmental unit that are related to such
utilities and facilities as consistent with Stat. § 66.1001(2)(d).

28

Transportation

Utilities
Water Supply
Buffalo County lies within the Lower Chippewa and Buffalo-Trempealeau drainage basins, each
feeding the mighty Mississippi River on the county’s western border. Despite the abundance of water
that travels through our lands, nearly all our drinking and irrigation water is sourced from our
groundwater supply. This water is mainly drawn from the county’s sandstone aquifer (USGS HA 730J, 1992). Shallow wells in river valleys may also draw on water held in the sands and gravels deposited
by rivers and glacial meltwater.
The moderate-to-high permeability of Bu alo County’s soils allow rain and snowmelt to rapidly
recharge Cambrian sandstone aquifers that sit atop a far less pervious pre-Cambrian igneous rock
formation (see illustration 5.3 in chapter 5). The exceptional rates of groundwater recharge along with
adequate rates of precipitation from the region’s humid-continental climate help to ensure an
abundant supply of groundwater for our future generations.
Table 4.1 Municipal High Capacity Wells
Municipal Water Supply
Name

Alma Waterworks

Normal Well Pump
Capacity
Gallons Per Day
Well 1- 216,000
Well 2 – 128,000

Population
Served
by
Facility
769

Well
Depth
(Feet)

Construction
Year

440

1910

488

1961

Cochrane Waterworks
Fountain City
Waterworks

49,000

450

100

1981

34,000

443

305

1965

Mondovi Waterworks

Well 1 – 216,000
Well 2 – 324,000
Well 3 – 576,000

2,667

384
373
444

----1972
1995

180,000

375

90.5

1968

Nelson Water & Sewer
Department
Wisconsin DNR Drinking Water System

As of 2025, roughly 65 percent of Buffalo County residents are served by private wells owned
and maintained by individual property owners. Buffalo County has no jurisdiction over the
siting or design of these wells. Private well drillers and residents are responsible for
complying with the regulations set forth by the Wisconsin Department of Natural Resources
(WIDNR) CH NR 812 and NR 809 Wis. Adm. Code. An estimated 35 percent of all Buffalo
County residents are served through five municipal water supply systems. These systems are
29

Utilities & Community Facilities

fed by 8 high-capacity municipal wells pumping anywhere from 34,000 gallons per day to
576,000 gallons per day.
Buffalo County has approximately 121 permitted high-capacity wells- wells that, by
themselves or in combination with other wells on a single property, have approval from the
Department of Natural Resources to pump over 100,000 gallons. These wells are used in a
variety of industrial, agricultural, and municipal applications.
Once known as the smallest city in the United States, the City of Buffalo City is actually one
of the largest communities in the region with no municipal well or central waste-water
treatment facility. Each of its residents rely on a private onsite wastewater treatment
system (holding tanks and septic systems) to treat wastewater produced by their homes or
businesses.
Buffalo City is bound by the Mississippi River to its west and sandy agricultural fields on all
other sides. The city’s surroundings, combined with high soil permeability and the high
density of private wells & septic systems in Buffalo City makes the possibility of groundwater
contamination a conceivable issue. In 2023, a well water study of Buffalo County
identified elevated nitrate levels (>2.0 ppm N) in 69% of the wells tested for the study in
Buffalo City, compared to the countywide average of 46%. These wells were mainly
concentrated in the northern half of the city.
In the past, high costs of infrastructure projects has discouraged adding municipal utilities to
the city. However, the potential health risks, aging infrastructure, development pressures
and limited space for replacement septic systems may outweigh system development costs.
The Buffalo County Department of Health and Human Services operates an in-house water
testing laboratory. This facility provides the community with bacteriological, nitrate, and
arsenic testing. The department routinely tests wells from around the county that provide
water to members of the public such as taverns and other businesses, public parks, childcare
facilities, schools, and churches for example. Private well owners may also voluntarily use the
services of the Health Department’s water testing lab. The services provided by this lab have
proven to be a cost-effective way for residents and Buffalo County to meet well sampling
requirements and help to ensure the safety of the county’s drinking water supply.

Wastewater Management
Private On-Site Wastewater Treatment Systems (POWTS): serve the majority of Buffalo County
residents. With the exception of Waumandee, only the incorporated communities of the county
provide their residents with sewer service to a municipal wastewater treatment facility. All other
county residents depend on POWTS to dispose of their wastewater. These facilities include various
Utilities & Community Facilities

30

facilities such as septic systems, holding tanks, portable restrooms, composting/incinerating toilets,
and vault privies (outhouses). All of these POWTS are regulated by the Bu alo County Department of
Land Management.
Five of the county’s six municipalities are served by a sanitary sewer service. Only Bu alo City and its
1,012 residents are served entirely by POWTS rather than a municipal wastewater treatment facility. A
few outlying homes in the City of Mondovi do not have sewer service are also served by POWTS. The
lack of a centralized wastewater treatment system and municipal well, particularly in Bu alo City, can
promote a sprawling pattern of development due to the regulatory setbacks between private wells
and septic systems.
Chapter SPS 383 Wisconsin Administrative Code was created to establish standards and criteria for
the siting, design, installation, inspection, and management of POWTS in the state. Buffalo County is
the governmental unit responsible for regulating POWTS within the county and administering the
POWTS maintenance program. There are approximately 4133 systems in our inventory. The inventory
helps to identify older POWTS in the county that need rehabilitation or replacement.
Wastewater Treatment Facilities (WWTF): Are owned and operated by the cities of Fountain City,
Mondovi, Alma, and the villages of Cochrane and Nelson, as well as the Town of Waumandee. In
accordance with Wisconsin’s Administrative Code NR 208, these facilities must adhere to regulations
set by the WIDNR Pollutant Discharge Elimination System (WPDES) Permit Program.
To promote awareness and responsibility of wastewater treatment needs and to maximize the lifespan
of these expensive capital investments, the WPDES Permit Program uses an annual, self-evaluation
report called the Compliance Maintenance Annual Report (CMAR). This report is intended to evaluate
possible system problems or facility deficiencies. CMAR not only provides each WWTF with a grade
point average (GPA) based on weighted CMAR responses but also rates sample data collected from
WWTFs. The GPA of a WWTF helps initiate actions that should be taken to prevent violations of
WPDES permit and possible environmental contamination.

Table 4.2 Buffalo County Wastewater Treatment Facility CMAR GPA Report
Facility Name

2021

2022

2023

2024

Alma Wastewater Treatment Facility

3.62

4.0

3.62

4.0

Cochrane Wastewater Treatment Facility

4.0

3.63

3.45

3.63

Fountain City Wastewater Treatment Facility

4.0

4.0

4.0

3.81

Mondovi Wastewater Treatment Facility

3.53

3.47

3.32

3.68

Nelson Wastewater Treatment Facility

3.84

4.00

4.00

3.74

Waumandee Sanitary District #1

3.53

3.26

3.88

4.00

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Utilities & Community Facilities

All WWTF within Buffalo County have a GPA of good or satisfactory for the years of 2021 to 2024. Scores
are calculated by subtracting any points generated for a specific category from 100. The corresponding
points can then be translated into an A through F grading scale (see Table 4.3 CMAR Point and Grading
System).

Stormwater Management: Is facilitated by various departments and agencies. The WI
Department of Natural Resources requires state stormwater permits for mine sites and construction
projects that disturb more than one acre of land. The Buffalo County Shoreland Zoning Ordinance
regulates land use practices within 300’ of navigable water ways while the Zoning Ordinance requires a
permit for any land alteration over 10,000 square feet.
Natural Resources Conservation Service (NRCS) technical standards are used as a guide in developing
stormwater management and erosion control plans. The County Conservationist works closely with
farmers and other landowners to control runoff and prevent soil erosion problems. The Buffalo County
Highway Department engages in stormwater management projects along highway right of ways to
control runoff and sedimentation into waterways.

Solid Waste Management: is a cooperative effort between Buffalo County and its incorporated
municipalities to promote and protect the public health, the natural environment, and general welfare
of residents, by minimizing environmental, economic and social costs to residents.
Solid waste management in Buffalo County is best described as convoluted. Historically, the county
has had some level of involvement/governance over solid waste but has stopped short of county action
to be the sole responsible agent since 1984 for the management of solid waste materials.
All residents have an option to contract for solid waste pick up from a private contractor. The
overwhelming solid waste removal program in Buffalo County is the bag system or more commonly
referred to as “Pay as you throw” (PAYT). PAYT programs have proven to be effective tool in increasing
recycling efforts while also encouraging waste minimization. The result is significant energy savings
from transportation, increases in material recovery for recycling, and reduction in pollution from
landfills and incinerators. PAYT programs also encourage producers to develop more efficient designs
and environmentally friendly product life cycles.
Under a PAYT scheme, waste collection costs are distributed more fairly among the population and in
proportion to the amount of waste, each user generates. This allows some or all of the costs associated
with waste management to be removed from the resident’s property taxes. Conversely, as long as the
resident has disposable income the system works. Since household waste has been noted as
“generally related to household income” even those with less disposable income are likely to face lower
waste collection charges under PAYT systems.
It must be noted that since a PAYT is dependent on one’s disposable income. Economic instability may
result in excess dumping and burning of household refuse.
Utilities & Community Facilities

32

Since the closing of the municipal landfills in the late 1980’s and the expansion of waste haulers,
a side effect known as Potential Responsible Party (PRP) possesses a threat to Buffalo County. A
PRP is a possible polluter who may eventually be held liable for the contamination or misuse of a
particular property or resource. Under the Superfund Act, municipalities may be held
responsible for the cleanup of contaminated landfills. The level of liability is dependent upon the
four classes of contamination, and the amount received from that municipality over a given time
period. The four classes of PRPs may be liable for contamination at a Superfund site:
1.

The current owner or operator of the site.

2.

The owner or operator of a site at the time of disposal of a hazardous substance,
pollutant or contaminant occurred.

3.

A person who arranged for the disposal of a hazardous substance, pollutant or
contaminant at a site.

4.

A person who transported a hazardous substance, pollutant or contaminant to a
site, who also selected that site for the disposal of the hazardous substances,
pollutants or contaminants.

To mitigate the risk, Buffalo County entered into a twenty-year agreement with La Crosse County,
and their Waste to Energy Program. The county bought into this program in 1991 and renewed in
2003 through 2023 at a cost of $9,450.00 annually. This program has been considered largely
ineffective. In 2023, the county did not renew their participation in the program and, at the time
of writing, is no longer participating in this program.
Buffalo County has decided that it will not pursue flow control- a legal provision that allows the
state and local governments to designate the places where municipal solid waste (MSW) is
taken for processing, treatment, or disposal. The idea of flow control has become a heavily
debated issue among state and local governments, as designated facilities may hold
monopolies on local MSW and/or recoverable materials. However, by instituting flow control and
routing Buffalo County’s material solid waste to La Crosse, the County could reduce the annual
cost to the La Crosse Waste to Energy Program exponentially by the amount of tonnage they
receive.

Recyclable Materials Management: in Buffalo County is organized through an
established Responsible Unit (RU) program governed by NR544. Buffalo County serves as the
responsible unit for 85% of the population. The towns of Waumandee, Glencoe, and Montana
operate as their own responsible units, along with the municipality of Fountain City. Responsible
33

Utilities & Community Facilities

units outside of Buffalo County's program hire private contractors to collect recyclable
materials, either through curbside pickup or at drop-off sites. They receive a small per-capita
stipend from the State to help cover their expenses. The County Recycling Program operates a
single-stream roll-off box drop site system. Material collected is sorted by Green Circle
Recycling, LLC, located in La Crosse, Wisconsin.
Table 4.4 Buffalo County Recycling Program

Town of Alma
Town of
Belvidere (BBC)
Town of Buffalo
Town of Canton
Town of Cross
Town of Gilmanton
Town of Glencoe
Town of Lincoln
Town of Maxville
Town of Milton
Town of Modena
Town of Mondovi
Town of Montana
Town of Naples
Town of Nelson
Town of
Waumandee
Village of Cochrane
(BBC)
Village of Nelson
City of Alma
City of Buffalo City
(BBC)
City of Fountain City
City of Mondovi

DNR
Responsible
Unit
Program
X

County DropOff Recycling
Sites
X

X

X

X
X
X
X
X
X
X
X
X
X
X
X
X
X

X

Curbside
Recycling

Landfills

Municipal
Composting

X

X

X
X
X
X
X

X

X

X

X
X

X
X

X

X

X

X

X
X

X

X
X

X
X

Buffalo County Recycling Department Data 2025

The County recycling program has ten drop-off sites throughout Buffalo County (see Table 4.4
Buffalo County Recycling Program for details on the services offered in each municipality).
Patrons can drop off their unsorted materials at these sites. The program collects the singlestream material from these remote locations and delivers it to the Materials Recovery Facility
(MRF) in the City of Mondovi for bulk processing, minimal storage, and shipping preparation. The
Utilities & Community Facilities

34

MRF, owned and operated by the Buffalo County Recycling Program, is dedicated to processing
bulk materials. It includes a tipping floor that assists in compacting the bulk material for
shipping.

Telecommunications Facilities: transmit information by electronic means. These
facilities include but are not limited to radio, telephone, television, and internet. If the basic
functions of telecommunications haven’t changed significantly since the initial writing of the
land use plan in 2012, one can still recognize that their stranglehold on our daily lives sure has.
Ready or not, many residents were forced to dive into this new ‘virtual reality’ when the Covid19 pandemic forced some employees to work, and many school children to learn, on devices
from home. For these employees and school children, remote work and virtual learning
became an expectation from their employers and school districts whether they had reliable
internet access or not.
During the early 2020s, online delivery services saw a boom in business, and it became the
norm to stream entertainment over the internet at home. Services such as telehealth and
massive online vacation rental booking platforms became part of the norm as well. None of
the technologies used in these digital services were new at the time, but their place in the
home became a sudden necessity during a time of enforced shelter-in-place orders.
Today, finances and other sensitive data are becoming increasingly digitized. It is now not
uncommon for businesses or institutions to refuse cash payment and opt for digital payment
instead. Digital codes, usually known as blockchain, now are used as a form of currency and
can be exchanged with fiat money. If this trend continues, new vast networks of energy, data
centers, and broadband services may be necessary to support these new facilities.
Telephone: Depending on your age, you might be surprised to see a wireless landline phone on
display at your local history museum. In 2005, more than 75% of American households had a
landline phone, but by 2022 only about 15% of Wisconsin households had one. Today, about
98% of US adults own a cellphone. This dramatic shift in tech use has required significant
changes in infrastructure over the last 20 years.
Due to the increase of wireless communication for public safety, business, and personal use,
the matter of constructing telecommunication towers has received attention from all levels of
government. Chapter 16 of the Bu alo County Zoning Ordinance establishes the permitting
requirements for mobile tower siting in the county. The adoption of the revised Zoning
Ordinance in 2018 came at the perfect time, providing a straightforward process for permitting
35

Utilities & Community Facilities

the numerous towers that were part of the federal FirstNet program that Wisconsin bought into
in 2017.
Spurred by di iculties in communications by first responders on 9/11/2001, the 2012 US
Congress authorized the creation of a public-private partnership to build a nationwide public
safety broadband network known as FirstNet. This project was funded in 2017, awarding AT&T
$6.5 billion and radio spectrum rights for 25 years. In return, AT&T would have to o er FirstNet
service from all of their new and existing cell towers while meeting certain connection strength
and service area requirements.

In 2018 alone, 16 new cellular communications towers were permitted in Bu alo County and
several more were added to the system in following years- this would more than double the
county’s mobile tower inventory. These towers were constructed into the early 2020s by Bugg
Tussel, an internet provider, who agreed to place AT&T’s microwave antennas on their towers.
Both Bugg Tussel and AT&T can o er private plans to the public, so long as AT&T provides
FirstNet services to public first responders for the term of their contract. These services will
also support the Next Generation 911 protocol discussed later in this chapter under the law
enforcement heading.
Since the implementation of the FirstNet program, service coverage in Bu alo County has
improved significantly- for first responders and private customers alike. The private
marketplace has also become more competitive, o ering better pricing. There are now 16
telecommunications providers throughout the county, a 45% increase since 2012. However, it
should be noted that there are a few limited areas of the county not covered by a service
provider (see Map 4.1).

Television and Internet: Are also provided by a few of Bu alo County’s telephone
cooperatives- typically in the form of cable television and fiberoptic internet. Due to the
topography of the county, it can be cost prohibitive for these to be installed in certain areas of
the county. But thanks to new and alternative technologies, many residents now have access
to broadband internet at competitive rates.
As part of their agreement with AT&T, Bugg Tussel o ers internet service from all of the FirstNet
towers that they installed. Unlike fiberoptic internet, no further investment in infrastructure is
needed other than a router that is rented to each subscriber for a monthly fee. Further
competition has entered Bu alo County’s marketplace in the form of satellite internet from
Starlink. At the time of writing, Starlink’s monthly fee for broadband internet services is less
than half the cost of tower projected internet.
Utilities & Community Facilities
36

Broadband internet is a form of electronic communication transporting large quantities of data
at download speeds of at least 100 megabytes per second(mps) and 20 mps upload speeds as
set by the FCC. Broadband allows businesses to save time and money, students to obtain
online information, and families to stay better connected over long distances. (Map 4.2
Number of Broadband Providers, displays current Broadband coverage throughout Buffalo
County)
Data Centers: As briefly mentioned under the ‘telecommunications’ heading, data centers are
used in the processing, storage, and transfer of digital data. While data centers have mostly
been out of sight and out of mind for Bu alo County’s residents over the past 50 years, an
explosion in demand from cloud computing services, the global financial system, and ‘artificial
intelligence’ ventures have recently brought data centers to the forefront of conversation in
Wisconsin.
The growing scale and frequency of data centers have driven public concern over the immense
amount of energy that large data centers use and the potential impacts to water from additives
used in the cooling process. Bu alo County’s first exposure to modern data center siting
occurred in 2026 with the installation of finance related data centers housed in shipping
containers that operated in conjunction with a local energy provider’s substations. Though
much smaller than the “hyper-scale” data centers that have been proposed or constructed in
Mount Pleasant, Port Washington, or Beaver Dam, these data centers brought some needed
attention to categorizing data centers in the Bu alo County Zoning Ordinance.

Electrical Power Generation and Distribution
Power Generation: Wisconsin primarily generates its electricity from coal and natural gas.
Over the past two decades, Wisconsin electric utilities have slowly been shifting from coal to
natural gas. The next three biggest sources (nuclear fuels, hydroelectric dams and wind) make
up a small percentage of Wisconsin’s electricity generation.
Buffalo County is serviced by two electric power generation sources, Xcel Energy and

Dairyland Power Cooperative. These two organizations produce and transmit all of the
County’s electricity from their power generation facilities to their cooperative members via
their transmission lines and Xcel’s limited distribution grid. The majority of the power

delivered to the residents of Buffalo County comes from the Dairyland coal-powered
plants located just outside the City of Alma. Originally built in 1947 to supply power for the
soaring, post-war energy boom, DairyLand’s’ Alma Station was decommissioned in 2014. Built
in the late 1970s, DairyLand’s most modern station, the John P. Madgett Station (JPM) has the

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Utilities & Community Facilities

capacity to generate 387 MWs of electricity. The JPM Station use electrostatic precipitators to
remove nearly 100 percent of all particulates that are created from the burning of coal.
The power that is produced from Alma’s Dairyland plant and Xcel’s Prairie Island nuclear power
plant, located in Welch, Minnesota, is transmitted via large transmission line to one of
approximately 17 substations located all throughout Buffalo County. Power from smaller

renewable energy sources is added to the electricity transmitted through these
transmission lines helping both Xcel and Dairyland meet their renewable energy quotas
set forth by the State of Wisconsin. From these substations, the electricity undergoes a
conversion from extremely high voltage, used to reduce energy loss during transmission line
travel, into a useable household voltage and amperage. This energy is then distributed to one’s
household via the much smaller distribution grid.
The final distribution of electricity is provided by one of the three energy wholesalers that service
Buffalo County, Riverland Energy Cooperative, Eau Claire Energy Cooperative, and Northern
States Power Wisconsin (a subsidiary of Xcel Energy). Riverland Energy Cooperative manages
the largest share of energy distribution within the County. Riverland was formerly known as
Buffalo Electric Cooperative and Trempealeau Electric Cooperative before their merger on June
1, 1999. Riverland energy is continuing to offer affordable reliable energy within Buffalo County.
(See Map 4.3 Utilities in Buffalo County for an overview of power utilities throughout Buffalo
County)
A slight increase in the cost of energy and in conjunction with greater accessibility to newer
technologies has helped to make the implementation of alternative energy sources a more
attractive proposition for many rural residents. The potential to use animal or agricultural
byproducts not only reduces one’s energy consumption but also reduces the cost associated
with the removal of these waste products.
New advanced technologies are also making it easier for residents to harness the natural energy
sources on their farms, providing yet another source of power generation that is plentiful and
environmentally friendly. There is currently one utility-scale solar farm online in Buffalo

County. A solar ordinance for these larger developments was enacted by Buffalo County in
2024.

Distribution: Completed in 2017, the CapX20202 transmission line provided much needed
upgrades to the electrical grid throughout the Upper Midwest. As part of a larger 800-mile
network, a 156-mile, 345-Kilovolt (kV) transmission line runs from substations in Hampton and
Rochester, Minnesota to a substation in La Crosse, Wisconsin with approximately 25.5 miles
running through Buffalo County.
This new transmission line was constructed by a coalition of 10 utility companies including
Dairyland Power Cooperative and Xcel Energy. The goal of the project was to improve electric
reliability while opening new avenues for renewable energy in Minnesota and Wisconsin.

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Approximately 95 landowners throughout Buffalo County were directly affected from the
acquisition of land for the use of easements and right-of-ways.
Alma to Blair Transmission Line Project: A $188 million project to construct a new 34-mile
double circuit 161/345 kV transmission line connecting the Blair Tremval Substation to the
Alma Substation. New 70’-90’ steel monopoles will replace existing wooden poles on one of
two existing routes running through the heart of the county. This transmission line will be
updated to “relieve congestion along the grid, support growing renewable energy resources and
ensure the continued delivery of safe, reliable and cost-effective electricity to homes and
businesses in western Wisconsin” as per Dairyland Power. The project has been approved by
the Public Service Commission and will be constructed in 2026 and 2027 with restoration
efforts taking place after the line goes in-service in 2028.

Natural Gas
Natural gas is considered a cleaner alternative to traditional fossil fuels used today. With 43% less
carbon dioxide (CO2) emissions than that of electricity derived from coal, natural gas is considered
by many as the best source of energy for the environment both inside and outside of one’s home.
Natural gas can be used for the heating of your home, drying of your clothes, and for the cooking of
meals. This multi-purpose along with a growing market of high efficiency appliances could
potentially lead to large energy savings for the residents of Buffalo County. Currently only Midwest
Natural Gas, Inc. provides natural gas services within Buffalo County. Most of the 1,233 residents’
serviced by Midwest Natural Gas, Inc. can be found around the City of Mondovi, with only a few
exceptions on the border between Buffalo and Trempealeau counties. (To view regions where
Midwest Natural Gas, Inc. provides services, please see Map 4.3) At this time, Midwest Natural Gas,
Inc. has no plans to expand their distribution of natural gas any further into Buffalo County. Low
population densities and long distances make any expansion an expensive undertaking for Midwest
Natural Gas, Inc.

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Community Facilities
Libraries: Buffalo County is a member
of the Winding River Library System
(WRLS). WRLS provides the residents of
its seven-county region with a wide
variety of library resources from
connections to massive online
databases, book sharing and delivery
capabilities, and collections of eBooks,
audiobooks, and other multimedia. This
system offers residents the availability to
easily access resources that may be too
cost prohibitive to obtain at the local
Figure 4.2 Gilmanton’s Howard Library is one of the oldest in the county.
Membership fees are still the same as they were in I866: $1.00 for a lifetime
level. Besides offering traditional library
membership.
resources these facilities offer free WIFI
internet access. This access to the internet has allowed residents whom are either unable to
afford or live in regions with limited internet options to search for jobs or further their
education.
The Cities of Alma, Fountain City, Mondovi, and the town of Gilmanton all have physical library
sites in the county at this time. Residents can travel outside of the county; however, the county
incurs charges for these usages. At present, Buffalo County is responsible for 70 percent of the
charges occurred by county residents. These rates vary, as individual libraries, which reside
outside the county, are responsible for setting their rates. This has resulted in large financial
spending on behalf of the county in past years. The Library Services Plan contains more
detailed information about the county’s participation in the Winding River Library System.
The City of Alma received a $4,250,000 grant to fund a new library and community center.
Construction of this facility began in 2025. Fountain City received a grant to renovate the
Municipal Auditorium and Library with construction starting in 2025. Mondovi moved the
public library to a new facility constructed in 2024.

Schools: Of the seven school districts that serve Buffalo County only four reside within the
borders of Buffalo County. (See Map 7.1 Buffalo County School Districts)
Alma School District: Located in the City of Alma, the district provides a safe educational
setting for all students from pre-K to seniors in high school. Multiple additions have been
added to the buildings original 1950’s structure to help facilitate a student population of about
300, with average class sizes ranging from 20 to 25 pupils. The school’s large gym and cafeteria
Utilities & Community Facilities

40

proves to be a great venue for many local community organizations, such as the Boy Scouts,
Girl Scouts, and for public forums / debates.
Cochrane-Fountain City (C-FC) School District: Constructed in 1959, the original school has
seen several di erent additions. These various additions helped to provide a safe learning
environment for the school’s estimated 550 student population. The pre-K-12 school complex
is located on one site, Fountain City and the Village of Cochrane. The Cochrane-Fountain City
Elementary School serves about 275 students in grades K4-6, and the Cochrane-Fountain City
Jr/High School serves about 275 students in grades 7-12.
The ample space of the C-FC high school gym, common areas, and the Jim Granum
Auditorium make it an ideal facility for events and public organizations. With minimal fees,
used only to help o set operating costs, residents and organizations of the district can rent
these spaces whenever school is not in session.
Gilmanton School District: the K4-12 school facility has a student population of approximately
130. The Elementary school is taught in a separate location in a combined classroom setting. A
three-story brick structure that was built in the early 1920’s houses grades 5-12 (middle and
high schools). As the student population expanded, additional expansions to this facility were
completed including a gymnasium and shops. The most recent expansion was the addition of
a science wing in the mid-90’s. There are currently no plans for future facility expansions at this
time.
School District of Mondovi: During the 2020-2021 school year, total enrollment was 894. The
student-to-teacher ratio in pre-kindergarten through grade 3 is no more than 18:1; the ratio in
all other grades is less than 25:1. There are 78 certified sta , 3 administrators, and 46 full- or
part-time support sta members.
District facilities include a complex in the city of Mondovi and another building, Anthony
School, located in Eau Claire County- about eight miles north of Mondovi on Highway 37.
Students in Five-Year-Old Kindergarten through grade 12 attend the city school; students
participating in the Early Childhood program or the Four-Year- Old Kindergarten program attend
Anthony School. The city complex includes an outdoor swimming pool, a distance learning
center, a fine arts performance area, weight room, three indoor athletic areas, and an outdoor
physical education area which includes newly renovated tennis courts and running track, a
football field, baseball and softball fields, and additional practice fields.

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Parks and Playgrounds: Bu alo County’s history and natural beauty o ers residents and
tourists a plethora of outdoor recreational activities, which range from pleasure driving, to
camping, biking, and water activities. Bu alo County does not own or maintain any county
parks or trails; however, patrons of the county can find many parks and trails provided by the
local municipalities, state, and federal agencies. For more specific information regarding the
location and uses of each park and trail system in the county please refer to the Bu alo County
Outdoor Recreation Plan.
Enjoying the natural beauty of Bu alo County is easy as there are roughly 11 camping areas,
located all throughout the County. The mix of public and privately owned and operated
camping sites provides approximately 433 total campsites (See table 4.6 Bu alo County
Camping Locations for more details). This diverse camping selection o ers the public a wide
range of camping experiences, from tent camping to recreational vehicle camping with an even
wider array of amenities. Bu alo County’s nationally top-ranking record of trophy whitetail
deer has inspired a growing number of outfitters and sportsmen’s clubs all throughout the
county. Though the majority of these lands are not open to the public without permission, they
do o er the outdoor enthusiast yet another experience.
The Lower Chippewa State Natural Area, in the Village of Nelson, allows outdoor enthusiasts
to explore the breathtaking views from the high blu s overlooking the Mississippi River and
Great River Road. The 161 acres not only provides scenic views of the blu lands, but also
provides excellent habitat for raptors, reptiles, and rare plant life found in few other parts of the
state. Once used by the Native Americans, this site was designated by the Wisconsin
Historical Society as an important archaeological site. This site not only protects the natural
beauty of Bu alo County but also the county’s historical heritage.
Thrive! Park, located in the Village of Nelson, is a newly established area that spans over 25
acres of blu top and blu side along the Mississippi River. Visitors can access the blu top via
hiking roads and trails. The park features "goat prairies," which have recently been cleared as
part of a broader prairie restoration initiative in the Nelson area.
Small municipal parks are located throughout the County. Many of these parks feature
playground equipment, green spaces, and open areas suitable for organized sports.
Surrounding several of these parks, residents can also find additional amenities such as
tennis, pickleball, and basketball courts, as well as baseball diamonds. These recreational
areas not only provide a safe environment for the county’s youth to play but also promote
physical fitness and community well-being.

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Near the Village of Cochrane and the City of Mondovi, there are private golf courses.
Additionally, a third golf course located just north of the County line near Durand is also
available to serve the residents of Bu alo County.

Child Care: Facilities can be found all throughout Buffalo County with day care providers
located in the Cities of Fountain City, Buffalo City, and Mondovi as well as within the Village of
Nelson. Currently, Buffalo County has ten licensed facilities, which allows for the care of more
children and stricter safety considerations. Buffalo County Department of Health and Human
Services is responsible for ensuring that state and local standards are continually being
followed by all known childcare facilities within Buffalo County.

Medical/ Health Care: Buffalo County has three medical clinics within its borders. These
facilities include St. Elizabeth’s Alma Clinic, Mayo Clinic Health System-Oakridge in Mondovi,
and Emplify Health’s Mondovi Clinic. However, due to insurance options, limitations in
services, and the vast distances patients must travel, many of the residents in the county are
forced to choose providers outside the county. Fortunately, Winona Health Services in Winona
Minnesota, Gunderson Lutheran in La Crosse, St. Elizabeth’s Medical Center in Wabasha,
Gunderson Tri-County Hospital in Whitehall, and Advent Health in Durand, and the numerous
medical facilities in Eau Claire and Menomonie, Wisconsin, are in relative proximity to Buffalo
County and have the ability to serve many of our residents immediate and specialty needs.
This limited access to quality universal health care was a major theme in past Community
Health Improvement Plans. Limited access not only encompasses one’s hospital care but also
the access the community has to dental, mental health, and long-term care services. Without
proper access to these critical services, the people of Buffalo County are at an even greater
risk of suffering from diseases such as obesity, diabetes, and excessive alcohol use.
Improvement in the number of medical facilities would not only aid in the efforts of improving
health conditions throughout the county but also has the potential to bring new high paying
jobs and higher levels of education to the communities within Buffalo County.

Senior Care Facilities: are located throughout Buffalo County. In the City of Mondovi,
residents can take full advantage of the skilled nursing staff and independent living apartments
of the American Lutheran Home. Seniors requiring less care can utilize the Buffalo County
Housing Authority to provide subsidized senior living, which is adjusted to one’s income. This
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organization helps the Buffalo County Aging and Disability Resource Center (ADRC) achieve
their “Aging in Place” mission, allowing senior citizens to have the resources to stay within their
communities as long as possible.
Several Residential Care Apartment Complexes and Community Based Residential Facilities
are also located in the City of Mondovi.
The Wisconsin Dept of Health Services’ Elder Nutrition Program uses state and federal funds,
plus contribution to provide at least one-third of daily nutritional needs of older adults. Meal
sites have been established in the Town of Gilmanton, The Village of Nelson, and the Cities of
Buffalo City and Mondovi. Though these sites run on various days of the week and times, they
do provide the county’s elderly community an affordable hot meal and social activities.
Programs like this have proven instrumental in maintaining cognitive health and establishing a
social network for checking on the health and welfare of our community’s older generation.
Home delivered meals are available throughout Buffalo County to eligible individuals.
Buffalo County’s rural setting makes transportation an ever-increasing issue for seniors or
those with disabilities. Transportation services are available to Pepin and Buffalo County
residents seven days a week for all purposes including medical, social, and personal business.
Priority is given to individuals aged 60+ and people with disabilities. Handicap accessible van
& bus available for individuals who require specialized transportation. Passengers will pay a
cost share rate which is determined by income. Requests for transportation must be made in
advance whenever possible. Through this program, residents of Buffalo County are able to
travel into Winona and Wabasha, Minnesota for grocery shopping, banking and
pharmaceutical needs. For more specific information about these types of services, please
contact ADRC Buffalo and Pepin Counties Transportation Program at 1-866-578-2372.

Cemeteries: Buffalo County has a variety of cemeteries varying in size, age, and
denominations. There are an estimated 67 known burial sites located all throughout the
county. All cemeteries within Buffalo County are maintained and cared for by either the
municipalities or by private organizations. Wisconsin Statute §157.115 indicates that if a
private organization abandons or fails to care for a cemetery then the municipality, in which
the cemetery is located in, may take control of the cemetery. This has the potential to create a
hardship on the municipality. As a result, Buffalo County does not have jurisdiction over the
cemeteries in the county.
The locations of these cemeteries are generally available in the Buffalo County Plat Books and
the Buffalo County Historical Society. The Buffalo County GIS/Land Information Office
currently has the location of most known cemeteries and graveyards mapped and available on
the County’s map portal webpage.
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Emergency Services: Outside of the cities of Fountain City and Mondovi, Buffalo County
relies predominately on the Buffalo County Sheriff’s Office and volunteer Fire and EMS
agencies to respond to emergency situations. The only fulltime staffed agency is the Buffalo
County Sheriff’s Office. State Patrol, and two local police departments augment the Sheriff
Department through mutual aid requests.
Buffalo County is a 911 County and is equipped with a dispatch center. All agencies respond by
dispatch and paging through the Buffalo County Sheriff’s Office Dispatch Center, which is
located at the Buffalo County Courthouse. In 2024, the Buffalo County Sheriff’s Office received
a grant from the Department of Military Affairs’ Office of Emergency Communications (OEC) to
install a NextGeneration 9-1-1 (NG911) system that will have the ability to transmit, receive,
process, transfer, dispatch, use, and store both voice and data (in the form of pictures, videos,
text messages, and incident information) associated with a 911 call or request for emergency
assistance.
With the advent of the National Incident Management System and the National Response
Framework, an all-hazards approach to emergency mitigation, planning, response and
recovery has taken place. The Departments of Public Health and Emergency Management are
intertwined in planning for the executable response to all-hazards (manmade/natural) events
within Buffalo County. This is done through strategic planning and the request for, and
implemented use of, state and federal resources.
There is a standing Local Emergency Planning Committee that meets twice annually to review
the status of bulk chemical plants and hazardous material spills within the confines of Buffalo
County.
Fire and HAZMAT - There are five volunteer fire departments within the boundaries of Buffalo
County. There are three supporting on the outer fringes of Buffalo County and they are Durand
VFD, Arcadia Glencoe VFD, and the Dodge Fire Department. There are also mutual aid
agreements (MOU)’s with Winona and Wabasha, Minnesota and Eau Claire, WI.
There are currently two Regional HAZMAT teams that service Buffalo County. Chippewa Falls,
Eau Claire north of state highway 95 and that is a level 1, formally (LEVEL A+) and La Crosse
south of state highway 95 and level 2 formally (Level A).
Ambulance Service - Six Ambulance companies service Buffalo County. Five are volunteer,
with Winona Area Ambulance being private. Mayo health care provides helicopter service out
of Eau Claire and Rochester, along with GundersonAIR out of La Crosse, WI.
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Law Enforcement - The Buffalo County Sheriff’s Office serves as the primary law enforcement
agency in the County. Although the City of Mondovi maintains its law enforcement agency, the
County is called upon regularly to assist in mutual aid situations. Located in the Buffalo County
courthouse building, the Buffalo County Sheriff’s Office’s twenty-three full-time staff and six
part-time employees provide 24-hour law enforcement and process services, court security,
jail facilities, and emergency dispatch. The Buffalo County Sheriff's Office's two K9 units and
the Mondovi Police Department's one K9 unit serve the County's 672 square miles.
Situated within the Buffalo County Sheriff’s Office, as depicted in Figure 4.1, Buffalo County
Sheriff’s Office Organizational Chart, the Buffalo County Jail and Dispatch Divisions are
responsible for providing 24-hour jail monitoring and emergency telephone services for all
residents in the county. Using an Enhanced 911 System (E911), dispatchers are able to send
and organize emergency management assets quickly and accurately. This highly integrated
system has proven to be a critical component in the managing of eight Fire Departments, four
First Responder organizations, six Ambulance Services, as well as with other county and state
entities, including those in Minnesota.
The County is further supported by two troopers from the Wisconsin State Patrol, and the DNR
Warden.

Other Governmental Facilities:
Built in 1962, the Buffalo County Court House, in Alma, serves as the seat of county
government. This facility houses all county offices as well as additional rental office space for
state agencies. The 1988 southern addition added approximately 12,320 square feet to the
overall building footprint. No future expansions are anticipated at this time. Buffalo County
owns and maintains five highway shops located throughout the County. Located off State Road
37, the largest of the Buffalo County highway shops, the Alma Highway Shop was originally
built in 1969. This facility has since remodeled its sign and office areas in 2004 as well as the
construction of a second larger storage building in 2010. Due to its close proximity to the
county courthouse and its relative central location within the county, this facility has become
the primary hub for equipment maintenance and field operations.
Smaller satellite shops can be found in the cities of Mondovi and Fountain City as well as in the
towns of Modena and Waumandee. These facilities vary in both age and size. (See Table 4.7
Other Government Facilities, for specific details) In an effort to maximize emergency response
times and optimize county resources, flood control equipment, emergency response trailers,
and the county impound facility have been strategically arranged at these sites. By placing
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46

these critical assets among the smaller highway shops, emergency planners can quickly
deploy them as needed even in the most severe conditions.
Many of the local units of government own and maintain their municipal buildings. These
facilities vary greatly in both age and size. Several of these structures were originally designed
and used as schools and for farm storage. These buildings have since been renovated into
large halls used for meeting and local events.

Goals and Objectives
Improve availability of necessary services to retain younger generations of
residents
Work with the health department to bolster childcare certification in the county. Look for ways
to expand this crucial service.

Prevent well water contamination in sensitive areas
Focus on improving groundwater in areas already identified as contaminated in the 2023 well
water study.
Work with the health department to conduct future studies, bolster current sampling e orts,
and educate residents. Look into launching a reverse osmosis program to support those with
contaminated water.
Investigate the use of community wells in areas more prone to groundwater contamination,
e.g. the Bu alo City area.

Improve cellphone and broadband services in the county
Be on the alert for Public Service Commission grants. The latest Broadband Expansion Grant
was opened on May 19th of this year and closed on July 27th.

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5
Our Land, Water, and Heritage
Agricultural, Natural, and Cultural Resources of Bu alo County

Figure 5.1. A farmstead in the Town of Montana (WI Land and Water, 2024)

Element Overview
Agricultural, natural and cultural resources element. This element focuses on the
conservation, and promotion of the effective management, of natural resources such as
groundwater, forests, productive agricultural areas, environmentally sensitive areas,
threatened and endangered species, stream corridors, surface water, floodplains,
wetlands, wildlife habitat, metallic and nonmetallic mineral resources consistent with
zoning limitations under s. 295.20 (2), parks, open spaces, historical and cultural
resources, community design, recreational resources and other natural resources as
consistent with Stat. § 66.1001(2)(e).

Agricultural, Natural, & Cultural Resources

52

Our Landscape
Lying on the northern edge of the driftless region, Bu alo County’s topography is extremely
varied. It consists mainly of high ridges, long narrow valleys, and areas of steep sloping
land in between. Blu s rise above the river bottoms by 500 feet in some areas. Soils
throughout much of the county are silty upland soils with sandy upland soils being
concentrated in the rolling hills of the northeastern reaches of the county. Loamy stream
terraces and mucky bottomland soils can be found throughout the county. While glacial
meltwater and ice dams had an impact on the county’s river valleys, the current
understanding is that only the northwestern edge of the county was glaciated during the
last ice age. Remnants of glacial till have been found on the ridges bordering Pepin County.

Agriculture and Natural Resources
Why Our Farms Matter: The Heart of Bu alo County
Agriculture is more than just a business in Bu alo County; it is the backbone of our
economy and the soul of our landscape.
A County Shaped by its Farms- Since settlement, most of Bu alo County’s land has been
held by people seeking an income or livelihood from agriculture. This has greatly impacted
the development of Bu alo County’s natural and cultural landscapes. Today, about 72% of
Bu alo County’s land lies within farms, down from a peak of 98% in the 1940s (USDA
Census of Agriculture 1910-2022).
High Farming Concentration- We are one of only three counties in Wisconsin where at
least 20% of all earnings or 17% of employment come directly from farming (USDA ERS
2025).
Soils Worth Protecting- We rely on Prime Farmland—land with the best mix of nutrients
and water to grow high-yield crops. Prime Farmland is comparatively rare in Bu alo County,
primarily occupying level ridgetops and stable valley floors. Farmland of Statewide
Importance is much more common in the county. It is nearly prime, but has greater
limitations such as steep slopes, high erodibility, or flooding potential. Currently, there are
zoning restrictions that discourage development on prime farmland (USDA Class I & II
soils).

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Growing Farm Size- While the number of farms has fluctuated, the average farm size has
grown to 346 acres as operations consolidate to remain e icient. In 2022, Bu alo County
had the largest median farm size of all Wisconsin’s counties and ranked second to Adams
County as the county with the largest average farm size.
Protecting our farmland ensures that the local agricultural economy remains stable,
providing jobs and maintaining the scenic "ridge and valley" views that make our county a
beautiful place to live.

Balancing Industry: Large Farms and Mining
It is important to balance our economic needs with the protection of our natural resources.
Permitting New Livestock Facilities: The Bu alo County Zoning Ordinance regulates the
location of new feedlots, barns, and parlors based on the number of “animal units” they
will hold. One animal unit is equal to 1,000 lbs of animal weight. A simple system of
setbacks from roads and property lines is currently used to site livestock facilities. While
there are no setbacks from new livestock facilities to existing homes, the ordinance creates
a setback for new non-farm homes from some existing livestock facilities. Any structure

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54

capable of holding more than 250 animal units also requires a conditional use permit. Any
new manure storage system or livestock structure holding more than 25 animal units are
required to submit a nutrient management plan to the department of land management
annually.
Managing Large Livestock Operations (CAFOs): Farms with over 1,000 animal units are
regulated and monitored by the state to prevent runo into our streams. These farms are
known as confined animal feeding operations (CAFOs). All CAFOs are required to have a
nutrient management plan. There are currently 6 CAFOs permitted in Bu alo County.
Strong mining and farming oversight prevents heavy truck tra ic and water pollution from
lowering property values or damaging residents’ quality of life.

Non-Metallic Mining: We currently have 35
active mines for sand, gravel, and stone. Any
new mines go through a permitting process
that involves review by the town board, a
third-party professional, the highway
department, and the board of adjustments.
Mines are required to have a reclamation plan
(an agreement to restore the land once mining
is finished) as well as a state stormwater
permit. The county inspects mines to ensure
that no more land is being mined than can be
reclaimed using funds held in bond with the
county, incase of insolvency. An annual fee is
paid to the county to cover the costs of
inspection.

Figure 5.3. Non-metallic mine reclamation at the O’Neil
quarry in the town of Montana (2021, Bu alo County LCD)

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Protecting Our Drinking Water (Groundwater)
Every single resident in Bu alo County relies on groundwater (water stored in underground
rock layers called aquifers) for their drinking water. Much of Bu alo County’s well water is
obtained from its porous sandstone aquifer that is made up of several layers of sandstone
that can be drawn simultaneously by s single well. Shallow wells in river valleys may also
use our uppermost sand and gravel aquifers (outwash/alluvium).

Figure 5.4: Cross section of a typical Bu alo County stream valley (WGNHS, 2001)

Sensitive Geology: Soils, especially those found in wetlands, can serve as a filter for
groundwater recharge. In the northern half of the county, sandy soils allow pollutants to
seep into groundwater more easily than the heavier soils in the south. Shallow bedrock
underlying our ridges (purple on Map 5.5.) often has cracks and fractures that create a
direct conduit to groundwater, allowing groundwater and pollutants to move through the
aquifer very quickly.
Wellhead Protection: Wells, due to their direct path to an aquifer, can pose a threat to the
safety and quality of groundwater if they are not properly constructed or maintained. Some
communities like Mondovi and Cochrane have formal plans to protect the area around their
municipal wells from contamination. Bu alo County currently does not have a wellhead
ordinance, but residents can test their well water by bringing a sample to the Bu alo
County Health and Human Services Department. Bu alo County currently has 126 highcapacity wells actively permitted with the WI DNR, up slightly from 123 in 2013.
Safe Waste Management: We use a Manure Storage Ordinance to ensure that farm waste
doesn't leak into our shared water supply. The Bu alo County Sanitary Ordinance is also
enforced to protect water resources from household sewage.

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Assessing Groundwater Quality: Bu alo County conducted a baseline well water quality
study in 2023 with the assistance of UW Stevens Point. The results “characterize a
groundwater source that is generally well balanced and aesthetically pleasing.” Of the 177
samples analyzed, 5% had nitrate-nitrogen levels above the safe drinking water standard.
These samples wells were mainly concentrated in agricultural areas of the south and northand southcentral regions of the county. 17% of wells contained measurable amounts of a
common pesticide but none exceeded the accepted health standard. Complete results
from the 2023 “Bu alo County Well Water Quality Monitoring” can be found in the
appendix. By managing how we use the land above our aquifers, we ensure that the water
coming out of your kitchen tap remains safe and clean for our family and our neighbor’s.

Navigating the Path to Healthy
Surface Water
The groundwater of Bu alo County
sometimes comes to the surface at low
points in the landscape and feeds perennial
streams. The year-round wet conditions at
these sites create a unique community of
plants and animals, setting them apart from
the ephemeral ditches that only drains water
during rain and snowmelt events. There are
1,600 miles of streams and rivers that run
through Bu alo County.
Funneling water: Each stream lies within a
larger watershed, an area of land that
channels runo from rain and snowmelt into
a common outlet. There are seven di erent
watersheds that, at least partially, lie within
Bu alo County’s borders according to the WI
DNR.
Figure 5. 5. WI DNR sta conduct a fish shocking
Assessing Watershed Health: Because
survey of Waumandee Creek (Bu alo County, 2023)
watersheds drain surface water into a shared
stream, the quality of water at this point can provide clues as to the type and intensity of
land use in a particular watershed. A healthy watershed will slow water as it moves across
the landscape and filter it as it continues its journey through the water cycle. A watershed

57

Agricultural, Natural, & Cultural Resources

experiencing disturbance among its natural communities may see high nutrient loading
from agriculture and household wastewater, increased flash flooding from impervious
surfaces, and cloudy water from washed soil.
Impaired Waters: States are required to maintain a list of waterbodies that do not meet
the water quality standards of the federal Clean Water Act. On this list, the WIDNR has
identified 21 impaired waterbodies in Bu alo County. By far, the most common
impairments for the county’s waterbodies are degraded habitat/ biological communities
and high phosphorus levels. Both the Mississippi and Lower Trempealeau Rivers are
impaired due to mercury in fish meat.
Table 5.1 Bu alo County Impaired Waters- With and Without Restoration Plans
Watershed Name
Bear Creek
Bohris Valley Creek
Botana Valley Creek

Pollutant/Causes
Total Phosphorus
Total Phosphorus
Cause Unknown

Rest. Plan?
No
No
No

TSS
Total Phosphorus

Impairment
High Phosphorus
Unknown
Degraded Biological
Community
Degraded Habitat
Degraded Biological
Community, High Phosphorus
Unknown
High Phosphorus
Degraded Biological
Community, High Phosphorus
Degraded Habitat
Unknown

Buell Valley Creek
Buffalo River

TSS
Total Phosphorus

Danuser Creek
Elk Creek
Harvey Creek (Lower
Buffalo River)
Irish Valley Creek
Iron Creek (Lower
Buffalo River)
Jahns Valley Creek
Little Bear Creek
Little Waumandee
Creek
Mississippi River
(Pools 4-6)
Rose Valley Creek
Swinns Valley Creek
Swinns Valley Creek
Trempeleau River
(Lower)
Waumandee Creek
Weiland Valley Creek
Wolf Valley Creek
Yaeger Valley Creek

Total Phosphorus
Total Phosphorus
Total Phosphorus

TSS
Total Phosphorus
Total Phosphorus

Degraded Habitat
Unknown
Unknown

Yes
No
No

Mercury, PFOS, Total
Phosphorus, PCBS
TSS
TSS
Total Phosphorus
Mercury, Total
Phosphorus
Total Phosphorus
TSS
TSS
TSS

Pollutants in fish tissue and
water column
Degraded Habitat
Elevated Water Temp
High Phosphorus
Pollutants in fish tissue, high
phosphorus levels
High Phosphorus
Elevated Water Temp
Degraded Habitat
Degraded Habitat

No

Yes
No
No
No
No
Yes
No

Yes
Yes
No
No
No
Yes
No
No

(WIDNR, 2024)

Agricultural, Natural, & Cultural Resources

58

Angling Our Way to High Quality Water: All of Bu alo County’s seven watersheds and
many of its impaired waters are home to trout, a type of cold-water sport fish that is
sensitive to poor water quality. These fish, along with other organisms, can be used as
‘biological’ indicators of watershed health. The WI DNR currently recognizes 30 trout
streams in Bu alo County. There have been significant e orts, especially in the southeast
of the county, to restore trout habitat and stabilize streambanks. These e orts have
resulted in 27 public fishing easements on trout streams in the county.
Lakes: Due to the county’s location within the driftless region, natural lakes are very rare;
however, the WI DNR has identified 41 water bodies as lakes (24K Lakes and Open Water
Data 2025). Except for Bensel Pond, near the CFC school building, and a few backwater
lakes in the floodplains of the Chippewa and Mississippi rivers, the vast majority of Bu alo
County’s 41 ‘lakes’ hold water because of man-made impoundments.
Tables listing inventoried trout streams, lakes, and watersheds can be found in the
appendix.

Enjoying Our Great Outdoors:
Land, Parks and Wildlife
Even though we do not have a formal "County Park"
system, Bu alo County o ers world-class
opportunities for recreation.
State Treasures- Merrick State Park and the Ti any
Wildlife Area provide over 13,000 acres for hunting,
fishing, and hiking.
Local Gems- Despite not having a county park
system, our towns and cities maintain vibrant
spaces like Buena Vista Park for scenic views (Alma)
and Mirror Lake for fishing and kayaking (Mondovi).
There are many other parks in the county, details
can be found in the appendix.
Forest Resources: Nearly half of our county is
forested (168,000 acres), though almost all of it is
privately owned.

59

Figure 5.6 A member of the Raptor Resource Project
rappels to a peregrine falcon’s nest (a state
endangered bird) on a headland blu between Alma
and Nelson. (BC DLM, 2024).

Agricultural, Natural, & Cultural Resources

Ecological Communities: Bu alo County’s rugged landscape creates the opportunity for a
variety of natural communities to thrive. However, because of land use changes some of
these communities are in danger of extinction. Of the 14 ecological communities identified
in Bu alo County, nearly half face vulnerability. The county’s Oak Openings are critically
imperiled, being listed as such at the state level and even globally. Oak openings contain
prairie plant species with 5-40% canopy cover from fire resistant trees. Most remaining oak
openings are found on steep west-to south-facing slopes where they are associated with
Dry Prairies on blu s (a more common but still vulnerable community).
Endangered and Threatened Species: In total, Bu alo County is home to 45 threatened
and endangered species listed by the WI DNR. Of these species, six are federally protected
and seven are federally listed as species of special concern. A complete list of the county’s
endangered and threatened species can be found in the appendix.
Dark Skies: Light pollution is a growing issue for humans and wildlife across the world.
Bu alo County, especially its interior, has some of the darkest skies between the La
Crosse, Eau Claire, Saint Paul, and Rochester. Promoting shielded lighting, warm color
temperatures (2200K or lower), motion sensors, and turning o unnecessary lights can
help protect night skies for the health and well-being of all.

Cultural Resources
Historical resources, programs, and special events bring people of a community together
to celebrate their cultural identity. Not only do these special events build community spirit,
but they can also be important to the local economy.

Historical Background
The anthropological history of the land now known as Buffalo County, Wisconsin dates back
several thousand years and begins with the area being used by Native American peoples as
hunting and gathering lands. In more recent history, the land was seen as a shared area among
adjacent tribes with the understanding that hunters and gatherers could be safe from any fighting.
European settlement began in 1839, when Thomas Holmes arrived with his wife, her brother and
his wife. Their trip northward on the Mississippi River was cut short by winter, and Holmes set up
a trading post hoping to trade with the Dakota Sioux living in the area now known as Winona. By
1853, enough settlers arrived to prompt the Wisconsin legislature to create Buffalo County.

Agricultural, Natural, & Cultural Resources

60

Figure 5.7 A participant in Waumandee’s annual fall Plow Fest
(Explore Bu alo County, 2025)

Buffalo County’s history is rich in
agricultural pursuits as well as
logging, other river related industries,
transportation and tourism. As the
county has moved through time, it
has adapted well to take advantage of
the natural beauty and resources
available. For more information about
Buffalo County’s history, one can
refer to the appendix’s ‘A Brief History
of Land Use in Buffalo County’ or the
Buffalo County Historical Society as
well as such books as The History of
Buffalo County, by L. Kessinger.

A Brief Inventory the County’s Cultural Resources
Each town, city and village have a variety of public events and organizations that exhibit local
pride. Listed are some examples of what the county believes to be of cultural importance:









Local churches (active and historical such as Tell Church and Eagle Valley Church)
Local schools (educate youth and promote a sense of community)
Local fairs (Buffalo County Fair and Gilmanton Free Fair)
Local community events (Mondovi Friendship Days and Waumandee Plow Fest)
Fraternal organizations (Lions and Knights of Columbus)
4-H Clubs (there are currently eleven in the county)
Museums and historical societies (from local and county history to medieval European)
Golf courses (Walnut Grove and The Valley)

The Bu alo County Fairgrounds- First held in Cream in October of 1872, the Buffalo
County Fair has held deep roots within the social fabric of the County. With the
replacement of the Buffalo County Agricultural Society by the Buffalo County
Agricultural Fair Association, Inc. (BCAFA) in 1954, the Buffalo County Fair has been able
to continue embodying its original philosophy of promoting better farm products and
stimulating better living conditions within the rural communities.
The Fair moved to the northwestern portion of the City of Mondovi in 1894, where it
still resides today. The City of Mondovi purchased the Fairgrounds in 1912, and then in
1954 the BCAFA obtained their first ten-year lease of the property for operation of the
Fair. Today the fairgrounds are still owned by the City of Mondovi and leased to Buffalo
County for the purpose of the County Fair. The Fair itself is organized and conducted
solely by the BCAFA.
61

Agricultural, Natural, & Cultural Resources

In 2018, after the Pepin County Fair lost its facilities and faced a decline in volunteer
numbers, it merged with the Buffalo County Fair, resulting in the first Buffalo-Pepin
County Fair held at the fairgrounds in Mondovi.
Multiple buildings have been constructed throughout the years to house livestock,
distribute concessions, and provide flush restrooms and entertainment during the
duration of the Buffalo County Fair. Many of these buildings are rented out for storage
throughout the rest of the year. The open grass areas of the fairgrounds provide an
excellent area for outdoor summer league activities such as soccer and flag football. The
City of Mondovi uses portions of the fairgrounds for smaller city events.

Preserving Our Cultural Resources
Unfortunately, there are many threats to the cultural resources of a community. Whether it
is development pressure, rehabilitation and maintenance costs, or simply the effects of
time, it is often difficult to preserve the cultural resources in a community. Future planning
within the community should minimize the effects on important cultural resources in order
to preserve the character of the community.
Buffalo County does not have any of its own historical resource databases, but there are
several state and federal databases that should be used to help identify and appraise
cultural and historical resources. More databases and tools may become available, and
the County would use those tools as well.
For places not listed in the following inventories or registers, the county can use the
National Park Service’s National Register Bulletin 15 to determine the historic significance
of a place. This bulletin identifies standard requirements to identify places eligible for the
National Register of Historic Places, whether they are significant on a national, state,
regional, or local level.
Wisconsin Historical Markers- identify, commemorate and honor the important people,
places, and events that have contributed to the state’s heritage. The WI Historical
Society’s Division of Historic Preservation administers the Historical Markers program.
There is only one registered historical marker in Buffalo County:
 Beef Slough, on Wisconsin State Road 35, ½ mile north of Alma
The Architecture and History Inventory (AHI)- A collection of information on historic
buildings, structures, sites, objects, and historic districts throughout Wisconsin. The AHI is
comprised of written text and photographs of each property, which document the
property's architecture and history. Most properties became part of the Inventory as a
result of a systematic architectural and historical survey beginning in 1970s.
Caution should be used as the list is not comprehensive and some of the information may
be dated, as some properties may be altered or no longer exist. Due to funding cutbacks,
the Historical Society has not been able to properly maintain the database. Also, inclusion
Agricultural, Natural, & Cultural Resources

62

of a property conveys no special status, rights or benefits to the owners. The Historical
Society lists 461 AHI records for Buffalo County. Contact the Wisconsin Historical Society
Division of Historic Preservation for more information about the inventory.
The Archaeological Site Inventory (ASI)- A collection of archaeological sites, mounds,
unmarked cemeteries, marked cemeteries, and cultural sites throughout Wisconsin.
Similar to the AHI, the ASI is not a comprehensive or complete list; it only includes sites
reported to the Historical Society. The Historical Society estimates that less than 1% of the
archaeological sites in the state have been identified. Wisconsin law protects Native
American burial mounds, unmarked burials, and all marked and unmarked cemeteries
from intentional disturbance. The Historical Society lists over 150 ASI records for Buffalo
County. Contact the Wisconsin Historical Society Division of Historic Preservation for
more information about the inventory.
The National Register of Historic
Places- is the official national list of
historic properties in America worthy of
preservation, maintained by the National
Park Service. The State Register is
Wisconsin’s official listing of state
properties determined to be significant
to Wisconsin’s heritage and is
maintained by the Wisconsin Historical
Society Division of Historic Preservation.
Both listings include sites, buildings,
structures, objects, and districts that are
significant in national, state, or local
history. There are currently 13 registered
places within Buffalo County.

Figure 5.8 The Fugina House in Fountain City is on the National
Register of Historic Places for its Prairie School style
Architecture (Jonathunder, 2014)

The establishment of a historical preservation ordinance and commission- is one of
the most proactive methods a community can take to preserve cultural resources. A
historical preservation ordinance typically contains criteria for the designation of historic
structures, districts, or places, and procedures for the nomination process. The ordinance
further regulates the construction, alteration and demolition of a designated historic site or
structure. A community with a historic preservation ordinance may apply for Certified
Local Government (CLG) status, with the Wisconsin State Historical Society. Once a
community is certified, they become eligible for:

Matching sub‐grants from the federal Historic Preservation Fund,

Use of Wisconsin Historic Building Code,

Reviewing National Register of Historic Places nominations allocated to the
state.

63

Agricultural, Natural, & Cultural Resources

While Alma and Fountain City both have historic preservation ordinances on their books,
no other local government in Buffalo County (including the County itself) has such an
ordinance. There are no Certified Local Governments in Buffalo County.

Disclaimer: Consistency Between Farmland Preservation and
Comprehensive Land Use Plans
The Bu alo County Farmland Preservation Plan shall be considered part of the Bu alo
County Comprehensive Land Use Plan, and therefore the documents must be internally
consistent. Though they may be adopted separately, the planning component of each shall
be considered the same document rather than two separate plans.
If there are any inconsistencies between the Bu alo County Farmland Preservation Plan
and the Bu alo County Comprehensive Land Use Plan, the Bu alo County Farmland
Preservation Plan shall supersede the Bu alo County Comprehensive Use Plan. This
applies to any inconsistencies that appear in maps or text contained in the plan. In the
event that any inconsistency is identified on a map, a note shall be added to the map
legends (farmland preservation and land use) explaining that the farmland preservation
plan takes precedence. If any inconsistency appears in text, the appropriate language shall
be added to the text where the inconsistencies are present.

Goals and Objectives
Continue to conserve Bu alo County’s soils
Bolster soil conservation initiatives by connecting existing producer led groups, staying
competitive in grant programs, and staying true to the county’s 10-year Land and Water
Resource Management Plan (2022-2031).
Update the Bu alo County Farmland Preservation Plan in 2027. Reach out to new towns to
see if they would be interested in joining farmland preservation (ANR-40) zoning. Recertify
both the farmland preservation plan and the farmland preservation zoning ordinance with
DATCP before December 31, 2028.

Agricultural, Natural, & Cultural Resources

64

65

Agricultural, Natural, & Cultural Resources

Agricultural, Natural, & Cultural Resources

66

67

Agricultural, Natural, & Cultural Resources

Agricultural, Natural, & Cultural Resources

68

69

Agricultural, Natural, & Cultural Resources

Map 5.6: Surface Water

Agricultural, Natural, & Cultural Resources

70

71

Agricultural, Natural, & Cultural Resources

6
Getting Down to Business
Economic Development Bu alo County

Figure 6.1: The Golden Frog in Fountain City was a frequent place to make agricultural trades. The business owners
no doubt benefited from these transactions (BCHS, ca. 1910)

Element Overview
Economic development element. Intended to promote stabilization, retention or expansion, of the
economic base and quality employment opportunities in Buffalo County, including an analysis of
its the labor force and economic base. The element shall assess categories or particular types of
new businesses and industries that are desired by the county. Strengths and weaknesses of the
county are analyzed with respect to attracting and retaining businesses and industries, and
adequate number of sites for such businesses and industries are designated as necessary. The
element evaluates and promotes the use of environmentally contaminated sites for commercial or
industrial uses. The element also identifies county, regional and state economic development
programs that apply to the local governmental unit as consistent with Stat. § 66.1001(2)(f).

Economic Development

72

Employment Information
Manufacturing, agriculture, and
education/health/social
occupations comprise a majority of
people employed in Buffalo County.
Buffalo County is very rural with an
abundance of natural beauty,
wildlife, and productive soils. It is
also within commuting distance to
manufacturing, education, and
healthcare jobs in Arcadia, Eau
Claire, La Crosse, Rochester, MN,
and Winona, MN. Buffalo County
tends to have very low
unemployment rates, as seen in
Table 6.1 Buffalo County
Employment Statistics, due to the
variety of jobs in the region and the
growth of industry in Arcadia (Ashley
Furniture and Pilgrim’s Pride
Chicken) and Mondovi (Marten
Transport). Many people may be
underemployed, but entry-level jobs
are available.
37 percent of the population that is
eligible to work are not in the
workforce. This number is made up
of retired residents, youth (few
youth jobs in many parts of Buffalo
County), disabled residents, and
people who are not interested in
working.

EMPLOYMENT STATUS
Population 16 years and over
In labor force
Civilian labor force
Employed
Unemployed
Armed Forces
Not in labor force
Civilian labor force
Unemployment Rate
OCCUPATION
Civilian employed population
16 years and over
Management, business, science, and
arts occupations
Service occupations
Sales and office occupations
Natural resources, construction, and
maintenance occupations
Production, transportation, and
material moving occupations
CLASS OF WORKER
Civilian employed population 16 years
and over
Private wage and salary workers
Government workers
Self-employed in own not incorporated
business workers
Unpaid family workers

NUMBER PERCENT
11048
6968
63.1
6960
63
6780
61.4
180
1.6
8
0.1
4080
36.9
6960
2.6
6780
2246

33.1

1001
1156
865

14.8
17.1
12.8

1512

22.3

6780
5360
812
572

79.1
12
8.4

36

0.5

Table 6.1: Bu alo County Employment Statistics
(US Census Bureau, DP03 2023 estimates)

MEANS OF TRAVEL
Car, truck, or van -- drove alone
Car, truck, or van -- carpooled
Public transportation (excluding taxicab)
Walked
Other means
Worked from home

PERCENT
79.5
5.5
0.1
4
1.5
9.4
MINUTES
Mean travel time to work (minutes)
25.3
Table 6.2: Bu alo County Commuting Habits

Commuting to Work: Many

(US Census Bureau)

employed residents of Buffalo County,
who do not work on their own farms, or
are self-employed, commute in or out
of the county to work. Table 6.2 Buffalo
County, Commuting Habits, indicates
the means of travel and the commute
time as reported in the US Census. The
communities where most residents
commute to work include Winona, MN,
Arcadia, Eau Claire, Wabasha, MN,
Durand, Menomonie, and La Crosse.

73

Economic Development

Industries of Bu alo County: Buffalo County has a small manufacturing base. Only one

manufacturing industry, La Crosse Milling (oat miller) is in the top ten employers in the County, see
Table 6.4 Buffalo County Top 10 Employers. Most employment opportunities in the near future will
be outside of Buffalo County. Following the plans and actions at the end of this section should
improve the long-term employment opportunities within Buffalo County.

Table 6.3: Bu alo County Top 10 Employers (WI Department of Workforce Development, 2025)

EMPLOYER

SERVICE OR PROCUCT

Marten Transport LTD

General Freight Trucking, Long
Distance TL
Elementary and secondary
schools
County government services
Electric power generation
Nursing care facilities
Elementary and secondary
schools
Elementary and secondary
schools
O ice administrative services

Mondovi Public School
Bu alo County
Dairyland Power
AM Lutheran Mondovi
Cochrane-Fountain City
School
Alma Public School
Midwest Dental
Management, Inc.
Department of Defense
La Crosse Milling Co.

Engineering services
Breakfast cereal manufacturing

NUMBER OF
EMPLOYEES
500-999 Employees
100-249 Employees
100-249 Employees
100-249 Employees
100-249 Employees
100-249 Employees
50-99 Employees
50-99 Employees
50-99 Employees
50-99 Employees

Economy
According to the FRED, Bu alo County had a gross domestic product (GDP) in 2022 of
$790,924,000. According to the USDA 2022 Census of Agriculture, Bu alo County sold
$348,867,000 in agricultural products. This would make agricultural products 44% of Bu alo
County’s GDP, not including any goods or services related to or incidental to agriculture.
On a chart, it appears that Bu alo County has soared to new heights and set a new record of GDP
dollar value. However, when adjusted for inflation, Bu alo County’s real GDP has actually declined
by over 21% since 2007.

Economic Development

74

Environmentally Contaminated Sites:
The Wisconsin Department of Natural Resources Bureau of Remediation and
Redevelopment Tracking System (BRRTS) was utilized to identify contaminated sites in
Buffalo County. The database identified one open or conditionally closed contaminated
site in Buffalo County, which is associated with a closed fueling station in Gilmanton.
The Wisconsin DNR Solid and Hazardous Waste Information System was reviewed for
waste disposal sites in Buffalo County. The registry has one operating site in Buffalo
County. Over 15 closed or inactive landfill sites exist in the county.
Since the sites listed above are already degraded, they can be the best first choice for
largescale building projects that may include commercial or industrial uses.

County, Regional, and State Economic Development Programs
County Programs
•

Buffalo County Economic Development Loan Fund Regional Programs:

•

Mississippi River Regional Planning Commission Business Capitol Fund

•

Riverland Energy Cooperative Revolving Loan Fund Program

•

Dairyland Power Cooperative Economic Development Loan Program

State Programs
•

Wisconsin Economic Development Corporation Technology Development Loan

•

Wisconsin Department of Agriculture, Trade and Consumer Protection
o

Dairy Development and Meat and Livestock Development Program

o

Organic and Specialty Crop Development Program

o

Buy Local, Buy Wisconsin Program

Federal Programs
•

75

USDA Rural Partners Program

Economic Development

Local Planning Effort:
Buffalo County regional economic development shall promote a stable and sustainable economic
environment through collaborative planning and community involvement that benefits business
and residents alike.
Economic expansion will recognize and respect that natural systems are vital to providing both
economic benefit and quality of life for all citizens. Our environment provides the opportunity to
support the requirements of various types of enterprise. Economic growth will reflect the scale and
values of our communities and citizens.

“The foundations upon which future economic expansion within the
county shall rest are:
• Supporting the growth of existing business;
• Creating new opportunities for sustainable business;
• Maintaining the unique quality of life already present in the county;
• Participating in the information economy.”

-Buffalo County Economic Development Committee, 2016 &
Buffalo County Economic Development Ad Hoc Committee Report,
December 2015

2013 Town Comprehensive Land Use Planning written surveys and Town planning meetings all had
several key factors that need to be considered when planning for economic development. They
include:
•
•
•

Preserve the natural beauty of Buffalo County
Preserve prime farmland in Buffalo County
Preserve the rural character of Buffalo County

Economic Development

76

The planning group on economic development concentrated on a paper submitted and presented
by Dr. Steve Deller; UW-Extension, UW-Madison Rural Economist, in 2011 that identified key
economic development clusters. The clusters identified by Dr. Deller include: forest and wood

products, dairy production, farm value-added production, tourism, transportation,
minerals, and construction. These clusters can be viewed in detail following the goals and
objectives of this element (Figure 6.2).
As with all economic development, business development cannot stand alone. Overwhelmingly,
people live in Buffalo County because of the natural beauty, small town atmosphere, and
agricultural base. Economic development must be in balance with these characteristics.

Goals and Objectives
Retain and Expand Existing Businesses
Make towns and municipalities familiar with the county’s Economic Development Committee (new
since the last plan). Investigate methods to increase workforce development and labor
participation in the county, particularly in childcare. Inquire into the workings of the Bu alo County
Economic Development Fund.
Foster orderly development clustered near existing business locations. Avoid conflicts with current
or future agricultural endeavors. Support and promote small niche businesses in the area,
especially those centered around agriculture.

77

Economic Development

Economic Development

78

79

Economic Development

7
Staying Connected
Intergovernmental Cooperation in Bu alo County

Figure 7.2. The Bu alo County Courthouse (WI Historical Society, 1984)

Element Overview
Intergovernmental Cooperation Element. This element is meant to promote joint planning
and decision making with other jurisdictions, including school districts, and adjacent local
governmental units, for siting and building public facilities and sharing public services. The
element analyzes the relationship of the local governmental unit to school districts,
adjacent local governmental units, the region, the state, and other governmental units. It
also incorporates any plans or agreements to which the local governmental unit is a party.
The element identifies existing or potential conflicts between the local governmental unit
and other governmental units that are specified in this paragraph and describe processes
to resolve such conflicts as per Stat. § 66.1001(2)(g).

Intergovernmental Cooperation

80

Relationships with Other Entities
Intergovernmental cooperation is any arrangement by which o icials of two or more
jurisdictions communicate visions and coordinate plans, policies, and programs to
address and resolve issues of mutual interest. This can be as simple as communicating
and sharing information, or it can involve entering into formal agreements or sharing
resources such as equipment, buildings, sta , or even revenue.
The Bu alo County Board of Supervisors (representing 14 districts) implement and oversee
county rules and regulations to protect the health, safety, and general welfare of the
community and environment. While issues do occasionally arise, the board of supervisors
and county departments have and continue to respond based on the values and best
judgments representing the county as a whole.
School Districts
Bu alo County is served by seven K-12 school districts and one private school: Alma,
Arcadia, Cochrane-Fountain City, Durand-Arkansaw, Gilmanton, Independence, and
Mondovi school districts, and St Boniface Catholic School. Bu alo County lies in two
technical college districts: Western Wisconsin Technical College and Chippewa Valley
Technical College. There are no conflicts identified at this time. (See Map 7.1 Bu alo
County School Districts).
Adjacent County and Overlapping Local Governments
Three Wisconsin counties surround Bu alo County: Pepin County, Eau Claire County, and
Trempealeau County. No conflicts are known to exist at the present time. Certain county
departments have and continue to coordinate and share information and services when
available.
Bu alo County has 17 towns, 2 villages, and 4 cities within its boundaries. Each of those 23
municipalities are represented by elected o icials who are responsible for managing the
a airs of the local government. Towns include Alma, Belvidere, Bu alo, Canton, Cross,
Dover, Gilmanton, Glencoe, Lincoln, Maxville, Milton, Modena, Mondovi, Montana, Naples,
Nelson, and Waumandee. The villages are Cochrane and Nelson. The cities are Alma,
Bu alo City, Fountain City, and Mondovi. (See Map 7.2 Bu alo County Municipal
Boundaries and Surrounding Regions).

81

Intergovernmental Cooperation

Regional Partners
Bu alo County is within the Mississippi River Regional Planning Commission’s (MRRPC)
area of representation. The MRRPC covers nine counties along the Mississippi River in
western Wisconsin. Its authorized functions include providing advisory services on regional
issues to local governments and other public and private agencies, acting as a coordinating
agency for programs and activities and contracting with local units of government to make
studies and o er advice on land use, thoroughfares, community facilities, public
improvements, and encouragement of economic and other developments. Specific
examples of services o ered by MRRPC are comprehensive plans, zoning and subdivision
ordinances, grant writing, geographic information system map production, revolving loan
fund administration, economic development planning, economic data collection and
dissemination, and advocating public policy positions on issues a ecting our region.
State Partners: Bu alo County, Wisconsin DNR, DOA, DOR, DOT, and other state
departments coordinate and discuss issues and potential joint projects to provide
desirable and valuable services to the residents and visitors of the county. Continuing
cooperation with these agencies will ensure future accomplishments benefiting the
county.
Federal Partners
Agencies that are active in Bu alo County include the US Department of
Agriculture’s Farm Service Agency (FSA) and Natural Resources Conversation Service
(NRCS). Bu alo County’s Land Management Department has primary interaction with
these agencies.
The US Army Corps of Engineers operates Lock & Dam 4, Lock & Dam 5, Lock & Dam 5A,
and the Fountain City Service Base. The US Fish and Wildlife Service (USFWS) manages
parts of two National Wildlife Refuges within Bu alo County: the Upper Mississippi River
National Wildlife and Fish Refuge and Trempealeau National Wildlife Refuge. The federal
government also owns two radio towers in Bu alo County, operated by two federal
agencies: the Federal Aviation Administration (FAA) and National Geodetic Survey (NGS).

Intergovernmental Cooperation

82

Planning and Other Agreements
Comprehensive planning is at various stages in Bu alo County’s local units of government.
At this time Bu alo County has entered into various intergovernmental plans or
agreements with local municipalities, other counties, and state and federal agencies.
These are some examples of the agreements that Bu alo County has entered into:
Statewide Voter Registration System with 21 municipalities, Aging and Disability Resource
Center with Pepin County, Trempealeau County and Town of Naples, and Economic
Support with local counties, NRCS, Bu alo-Pepin County Fair Association, Winter Road
Maintenance Agreements with Pepin County, Trempealeau County, and Town of Naples,
and Department of Transportation contractual agreements. The review period of each of
these agreements vary from yearly to 25 years.

Emergency Response
Local law enforcement, first responders, ambulances, and fire departments provide
services to area residents in emergencies. Because of the terrain in the Driftless Area
restricting direct travel and the resulting response times, emergency service coverage
areas do not align with county boundaries. Ambulance services from Arcadia in
Trempealeau County, Durand in Pepin County, and Winona County, Minnesota, respond to
47% of Bu alo County. Mondovi ambulances likewise respond to parts of Pepin County
and Eau Claire County. Fire departments from Arcadia and Independence in Trempealeau
County and Durand in Pepin County respond to 16% of Bu alo County, and Mondovi Fire
responds to parts of Pepin County and Eau Claire County.
These are governed by formal agreements between those jurisdictions. Another issue
caused by Driftless Area terrain is that cell phone calls often connect to towers in other
jurisdictions, requiring 911 dispatchers to transfer emergency calls to the proper agency,
either in other counties or even across the river in Minnesota.

Extraterritorial Zoning (ETZ)
Cities and villages with population less than 10,000 can exercise a 1.5-mile extension of
zoning control outside their corporate boundaries if the proper cooperative steps with the
adjoining town(s) are followed (Wis. Stat. 62.23(7a)). This allows cities or villages to extend
land use control over new development that otherwise might be incompatible with a city’s
or village’s future growth.

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Intergovernmental Cooperation

Potential benefits of ETZ include:





Provides for smoother transitions between rural and urban land uses.
Reduces conflicting land uses, which lessens citizen complaints and protects
property values.
Makes planning for roads, utilities, recreation facilities, etc. easier.
Coordinates mutual protection of sensitive areas and natural resources.

Strong intergovernmental cooperation and communication are a requirement when
enacting ETZ. Municipalities that enact ETZ must work with towns and the county to obtain
ETZ authority. The key to using ETZ successfully is early and continuous discussions
between all jurisdictions and formal public input. Sharing and discussing land-use plans
regularly could ultimately reduce the need for ETZ.

Existing and Potential Conflicts
The legislation regarding comprehensive planning requires Bu alo County to identify any
existing and/or potential problems between the County and other governmental units. The
problems and the processes to resolve those problems must also be described.
The only potential conflict identified at this time is Section 108.04 of the City of Mondovi’s
Municipal Code. This article identifies the city’s intensions to exercise extraterritorial zoning
on portions of the Towns of Naples and Mondovi. It seems that this article may have
expired, but it may be proactive for the city to enter into conversations with the county and
towns to address these intentions.
There are no other known active conflicts between the county and other intergovernmental
units. Potential conflicts could arise with various zoning regulations in the county.
Municipalities and the county should be encouraged to work together for uniform zoning
regulations and avoid such conflicts.
One weakness that has been noted is less than ideal communication between
municipalities and the county board. Possible solutions to correct this are a biannual
meeting between the municipalities and county board, or the county board supervisors
attending municipal meetings within their district, to keep them informed of upcoming or
trending issues.

Intergovernmental Cooperation

84

Goals and Objectives
Encourage continued participation in the Wisconsin Towns Association
Villages should also be encouraged to join. Find ways to drive consistent interaction and
communication between county board supervisors and board members of the towns they
represent.

85

Intergovernmental Cooperation

Intergovernmental Cooperation

86

87

Intergovernmental Cooperation

8
Stewardship
Land Use in Bu alo County

Figure 8.3. Farmers gather around to hear the results of UW Extension’s wheat trials. Agriculture is, and has long
been, the main land use in Bu alo County (BC LCD)

Element Overview
Land-use element. This element is used to guide the future development and redevelopment of
public and private property. It lists the amount, type, intensity and net density of existing uses of
land in the local governmental unit, such as agricultural, residential, commercial, industrial and
other public and private uses. It also analyzes trends in the supply, demand and price of land,
opportunities for redevelopment and existing and potential land-use conflicts. Projections of future
residential, agricultural, commercial and industrial land uses are based on Chapter One’s
background data. Maps in this element show current and future land uses, productive agricultural
soils, natural limitations for building site development, floodplains, wetlands and other
environmentally sensitive lands, the boundaries of areas to which services of public utilities and
community facilities (chapter 4), will be provided in the future, consistent with the timetable
described in Chapter 4, and the general location of future land uses by net density or other
classifications as per Stat. § 66.1001(2)(h).

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How Land Use was Decided in the Past
Before Zoning: Prior to 1965, land use in Bu alo County was shaped by transportation and the
public land survey system. Combined with the county’s unique geography, these factors eventually
created the rural landscape that we are familiar with today. It was a growing wave of technological
changes in the mid-20th century that brought calls for a more active approach to land use controls.
More about this topic can be found in the Appendix under “A Land Use History of Bu alo County.”
Modern Zoning was Born in Bu alo County: In the 1960s Bu alo County pioneered a new
concept of zoning that extensively integrated the USDA’s soil surveys into the county’s system of
land use control. 1965 Bu alo County Zoning Ordinance remained largely unchanged for over half a
century, until the ordinance was entirely revised in 2018. Though the historical ordinance was a
small booklet of only 28 pages, its impact on land use across the unincorporated areas of Bu alo
County was much more imposing; enforcing its standards on thousands of structures across
generations of residents.

Current Zoning and Land Use Ordinances
Administration: At the time of writing, 15 of the 17 towns within Bu alo County participate in
county comprehensive zoning as described in Wisconsin Statute 59.69. Zoning regulations are
established by the elected o icials of the Bu alo County Land Management Committee who
oversee the operation of the Department of Land Management. This department consists of
employees charged with interpreting the ordinance and carrying out the day-to-day tasks required
to implement the zoning ordinance as well as other regulations across the county. When special
circumstances arise (i.e. a variance from the zoning ordinance, the issuance of a conditional use
permit, or an appeal of the zoning department’s decision), appointed members of the Bu alo
County Board of Adjustment are tasked with upholding the integrity of the zoning ordinance.
Purpose and Intent of the Zoning Ordinance: The general purpose and intent of the Bu alo
County Zoning Ordinance is to promote and protect public health, safety and general welfare.
Specific purposes of this ordinance include but are not limited to: aid in the implementation of the
Bu alo County Comprehensive Land Use Plan and other relevant plans; establish zoning districts
to guide the distribution and location of land uses; encourage planned and orderly land use and
development; conserve the natural resources of the county including agricultural lands, forests,
wetland, and surface and groundwater resources; protect and conserve property values, economic
stability and the property tax base; facilitate adequate provisions for highway, utility, education,
health, emergency response and recreation facilities; encourage land uses which are in
accordance with their character and suitability; encourage land use and location of structures
which is compatible with existing and planned land uses, and prohibit and control land uses
deemed incompatible with nearby land uses; protect and conserve the scenic beauty and
amenities of the natural and geographic features of the county; protect and conserve the soil
resources of the county by managing erosion and stormwater runo from development sites;

89

Land Use

provide for the administration and enforcement of this ordinance and prescribe penalties for the
violation of this ordinance or any amendments to this ordinance.
Current Zoning Standards: Established with the adoption of a comprehensive revision of the
county zoning ordinance in 2018, the current ordinance consists of 21 chapters and is 228 pages
long. This revision was a complete overhaul of the 28-page 1965 ordinance and aimed at
addressing many of the land use concerns voiced in the 2013 comprehensive land use plan. Among
these were the revision of minimum lot sizes, permitting requirements for houses built on steep
soils, the establishment of blu land development standards unique to the Mississippi River
corridor, age requirements for mobile homes, prohibition of driveways that are not safely accessible
to emergency services, compatibility with Wisconsin’s Right to Farm Law, promoting farmland
preservation through incentive programs and 590 nutrient management plans, encouragement of
town participation in conditional use permit and rezone applications, and a comprehensive update
the county addressing system.
Zoning Districts: Are divided into residential, commercial, industrial, conservation and
agricultural/natural resource (ANR), the last being divided into five separate districts based on
density of single-family homes.
Farmland Preservation E orts: To make Wisconsin’s Farmland Preservation Program tax credits
available to residents, the 2018 revision implemented certain state-required protections for
farmland were implemented across the majority of towns in the county. To balance residents’
desire for future residential development with calls to participate in the farmland preservation
program, the least restrictive model ordinance was selected for use. This model became what is
now Bu alo County’s farmland preservation zoning district (ANR-40).
Properties in the ANR-40 zoning district, whether the owner is collecting the tax credit or not, may
have only one lot ‘parceled o ’ for each 40 acres owned under a single deed. When four new lots
have been created or 5% of a property has been divided from the parent tract (which ever comes
first), a restriction is placed on the property’s deed preventing any future land division from the
property. The Towns of Bufalo, Canton, Gilmanton, Lincoln, Maxville, Milton, and Waumandee did
not desire to participate in the program.
When residents were surveyed in 2024, a majority felt that too much farmland was being converted
to non-farm uses. This may indicate that additional measures may need to be taken to prevent the
intrusion of non-farm land use in Bu alo County to satisfy current public concerns. This could be
accomplished by reducing the number of land divisions allowed in the ANR-40 zoning district (for
example, from one division per 40 acres owned to one per 80 acres owned), or by encouraging
nonparticipating towns to rezone agricultural lands to the ANR-40 zoning district.
Blu land Preservation E orts: To preserve the historic, environmental, economic, and scenic
value of the blu s along the Mississippi River, measures were put into place in 2018 to discourage
building on these headland blu s as well as the interior blu s, hills, ridges and floodplains of the
county. Chapter 14 of the Bu alo County Zoning Ordinance established a blu lands and steep

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slopes ordinance, setting development and performance standards on any slopes ranging from 1222% and prohibiting development on slopes greater than 32%. Further restrictions are put in place
for lands determined to be within any ‘blu impact zone’ as well as lands determined to be part of
the Mississippi River Headland Blu s overlay.
Local Involvement in the Permitting Process: Gaining additional participation from towns in the
conditional use permitting process was a previous objective of the 2013 Comprehensive Land Use
Plan. This objective was accomplished with the adoption of the 2018 revision of the Bu alo County
Zoning Ordinance. Towns may now provide direct input to the Zoning Department and Board of
Adjustments prior to the public hearing for a rezone, variance, or conditional use permit via a Town’s
Acknowledgement Form. Applicants are responsible for submitting this form to the town
government, which will provide a response of support, opposition, or no comment as well as any
comments or recommendations by the town board. A received Town’s Acknowledgement form is
required prior to holding a public hearing.

Other Land Use Ordinances
In addition to zoning, the following ordinances are also administered by the Department of Land
Management:
Assemblage Ordinance: The purpose of this ordinance is to regulate the assemblage of large
numbers of people, requiring a license therefore, to protect the health, safety and welfare of all
persons, residents and visitors, and to impose penalties and enforce the same against any person
for any violation of such ordinance.
Floodplain Ordinance: The purpose of this ordinance is to provide a regulatory scheme for
development in the unincorporated areas of Bu alo County in that uncontrolled use and
development of its floodplains and rivers would impair the public health, safety, convenience,
general welfare and tax base.
Shoreland Ordinance: The purpose of this ordinance is to provide a regulatory scheme for the
purpose of promoting the public health, safety convenience and welfare, and promote and protect
the public trust in navigable waters by preventing and controlling water pollution, protecting
aquatic life, controlling land use, and preserving/ restoring shoreland vegetation and scenic beauty.
Subdivision Ordinance: The purpose of this ordinance is to provide safe and orderly subdivision
layouts.
Sanitary Ordinance: The purpose of this ordinance is to promote and protect public health and
safety by assuring the proper siting, design, installation, inspection and management of private onsite wastewater treatment system (POWTS) and non-plumbing sanitary systems.
Uniform Numbering System Ordinance: The purpose of this Ordinance is to promote and protect
the health, safety, and general welfare of the public of Bu alo County by providing the most

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Land Use

practical, e icient, and logical means of physically locating properties and structures located in the
County. The primary and vital purpose of an addressing system is to provide the means and
standards for the most rapid location of property by emergency service providers including;
emergency medical service, fire departments, law enforcement, and other first responders and
service agencies. The system will also serve the U.S. Postal Service and the public at large in the
timely and e icient delivery of services. It is the intent of this Ordinance to establish the method by
which address numbers are assigned, as well as how signs are obtained, installed, and maintained.
It is further intended to provide for requirements for road naming and the review process and
responsibilities involved in assuring all public and private drives are named and signed in
accordance with accepted criteria.
Nonmetallic Mining Reclamation Ordinance: The purpose of this ordinance is to establish a local
program to ensure the e ective reclamation of nonmetallic mining sites on which nonmetallic
mining takes place in compliance with state statute and administrative rule.
Solar Ordinance: The purpose of this ordinance is to provide a regulatory means for the siting,
construction, and operation of both small- and large-scale solar installations in the County of
Bu alo, subject to reasonable restrictions, which will preserve the public health and safety. Roof
mounted and wall mounted solar arrays do not fall within this ordinance.
Uniform Dwelling Code Ordinance: The purpose of this ordinance is to provide a regulatory
scheme for the construction of 1 and 2-family dwellings and other habitable structures. It also
addresses the placement of manufactured homes, subject to reasonable restrictions, which will
preserve the public health, safety and general welfare. (Bu alo County contracts with a private
party to fulfill the requirements of this ordinance).
Wind Energy Facility Ordinance: The purpose of this ordinance is provide a regulatory scheme for
the construction and operation of wind energy facilities, subject to reasonable restrictions, which
will preserve the public health, safety and general welfare. It addresses the timely removal of nonoperating, reconstructed, enlarged and relocated wind towers as well.

Current Development Trends
Overall, zoning permit issuance has been relatively stable since 2017- following the adoption of the
new zoning ordinance (Figure 8.2). There has also been a significant decline in the number of
conditional use permit applications. This is likely due to the much more straightforward method of
land use permitting in the new zoning ordinance when compared to the original zoning ordinance.
While only time can tell if this is actually the case, it can illustrate the importance of adequate land
use controls to meet the needs of communities and a unique landscape.

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Annual Number of Approved Land Use (Zoning) Permits
1965-2024
250
200
150
100
50

2023

2021

2019

2017

2015

2013

2011

2009

2007

2005

2003

2001

1999

1997

1995

1993

1991

1989

1987

1985

1983

1981

1979

1977

1975

1973

1971

1969

1967

1965

0

Figure 8.2: Zoning Permit approval over time (Bu alo County Zoning Department)

Since the adoption of the 2018 zoning ordinance revision, Waumandee and Montana have not
participated in zoning. This can make it more di icult to track development trends in the county.
However, the zoning department still has purview over sanitary permitting in these towns. By
monitoring the number of new sanitary permits issued each year, one can get a picture of the
overall residential development in areas without public sewer service in the county (figure 8.3)

Number of Sanitary Permits Issued by Year and Type
160
140
120
100
80
60
40
20
0

Number of Replacement Sanitary Permits

Number of New Sanitary Permits

Figure 8.3: Number of new sanitary permits STACKED on number of replacement sanitary permits over time (BC Zoning)

Terminology for Present and Future Land Use
There are three general terms that are used throughout the remainder of the land use element:
current and future land use, zoning districts, and assessed land. It is important to understand what
is meant by each of these terms.

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Land Use

Current and Future Land Use- Current land use is a snapshot of the primary use of a particular
piece of land at any given moment. The current land use classification does not identify any
accessory or secondary land uses that may be present on a property. Future land use is a
projection of what planners believe the primary land use for a particular piece of land will be at a
given point in the future. Planners, at the town and county level, determine future land use based on
development that they foresee as being favorable for the predicted future needs of Bu alo County
residents.

Zoning Districts- Zoning is a system for regulating land use within a given governmental unit. It is
the main planning tool of local governments to manage future development and is the primary tool
for implementing land use plans. Various geographic areas (zoning districts) are restricted to
certain uses and development. Bu alo County has nine zoning districts designed to regulate the
types of activities that can be accommodated on a given piece of land, the amount of space
devoted to those activities, and the ways that buildings may be placed and shaped.

Assessed Land – The local property tax rate (typically unique to the town) applied to a property in a
particular year is determined by classification of land uses on tax parcels constituting that property.
Unlike current and future land use classifications, a property can have multiple assessed land use
classifications across a single tax parcel. Thus, while not perfectly accurate, data from assessed
lands provide greater detail and more insight into land uses that are accessory to the primary land
use on properties across the county.
The following is a hypothetical situation showcasing the interaction between these three systems of
land use categorization:
A five-acre parcel of land is zoned for agricultural use; however, an old farmhouse sits on three
acres of lawn within this parcel. The remaining two acres is part of a larger row crop field. Despite
being zoned agriculture, the current land use classification of this parcel would be residential. The
tax assessor would likely assess the parcel as consisting of three acres of G1 (residential) land and
two acres of G4 (Agricultural) land. This five-acre parcel is also adjacent to a state highway and an
existing cheese plant. Since this is the only industrial development in town, the town board desires
that any future industrial development occur on this parcel of land should the need arise.
Therefore, this property would be classified as industrial under the future land use system of
categorization.

Current and Future Land Use
Of Bu alo County’s 672 square miles of land, agriculture is currently the predominant land use

in Bu alo County, covering nearly 197,500 acres or about 64% of assessed land. Forested
and undeveloped lands currently make up the second largest land use category, accounting for
over 101,000 acres or 33% of assessed land. All other land uses, namely developed lands,
represent approximately 10,400 acres, or only about 3% of assessed land.

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Land Assessment: Table 8.1 2023 Property Assessments, displays the breakdown of property uses
within the county in the unincorporated Municipalities in the county. The eight statutory
classifications for real property are residential, commercial, manufacturing, agricultural,
undeveloped, agricultural forest, productive forest land and ‘other.’

Residential
Acres

Commercial
Acres

Manufactur.
Acres

Agricultural
Acres

Undeveloped
Land Acres

Agricultural
Forest Acres

Productive
Forest Lands
Acres

Other

Total Acres

Table 8.1 Property Assessments 2024 (Bu alo County Treasurer’s O ice)

T. of Alma

201

36

0

9,649

2,021

3,471

1,148

198

16,724

T. of Belvidere

298

129

0

9,460

604

3,164

1,641

250

15,546

T. of Bu alo

636

101

30

5,903

1,216

4,163

1,588

202

13,839

T. of Canton

229

1

21

11,484

1,816

3,052

348

160

17,111

T. of Cross

333

14

0

9,774

2,231

3,426

1,004

196

16,978

T. of Dover

429

26

55

13,809

1,647

2,880

739

202

19,787

T. of
Gilmanton
T. of Glencoe

304

13

0

11,941

2,034

4,107

845

186

19,430

193

21

172

18,322

796

3,340

691

420

23,955

T. of Lincoln

124

5

0

8,931

1,231

4,139

1,090

136

15,656

T. of Maxville

144

24

137

11,332

459

5,716

1,193

185

19,190

T. of Milton

286

88

13

4,163

2,500

1,525

449

89

9,113

T. of Modena

305

36

0

9,232

2,423

3,140

719

139

15,994

T. of Mondovi

505

70

164

13,492

1,254

2,197

726

120

18,528

T. of Montana

134

13

0

17,048

833

4,342

657

243

23,270

T. of Naples

590

29

0

14,510

2,425

2,282

420

209

20,465

T. of Nelson

768

49

28

12,822

2,189

5,182

1,280

182

22,500

T.Waumandee 228

30

3

15,627

1,070

3,284

708

270

21,220

Total Acres

685

623

197,499

26,749

59,410

15,246

3,387

309,306

Municipality

5,707

A Snapshot of Actual Land Use: Wisconsin law requires an assessor to classify land on the basis
of use. There are situations where this involves a judgment of the predominant use but,
nonetheless, tax assessment data can give a more detailed picture of how land is currently being
used compared to its potential use- as would be depicted on a zoning map.
Current and Future Land Use of Bu alo County: Depictions can be seen on Maps 8.1 and 8.2
(respectively). The Current Land Use Map depicts the primary assessed land use of tax parcels
within Bu alo County. This map contrasts slightly with the Future Land Use Map that shows areas
identified by municipal comprehensive planning e orts as being ideal locations for future
residential, industrial or commercial development as established in 2013.

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Land Use

An Important Note: the Future Land Use Map does not reflect the anticipated use of land in the
near future- most residents of Bu alo County do not foresee any significant change in population or
development over the next two decades. Instead, the Future Land Use Map is a preparative
document intended to guide decision making in the event that a town would experience residential
growth or receive a request for industrial or commercial development.
This method of land use planning not only helps direct future development but also provides citizen
input into the future of the community. Comparing current and future land use maps also helps
decision makers identify areas where potential conflicts could exist between land usages. These
maps, along with current zoning maps, should be viewed as tools to help make subsequent zoning
and other land use decisions more informed and more transparent.

Guiding Future Development
By comparing property assessment data (current land use) to anticipated changes in population or
economic conditions (future land use), development can be encouraged or discouraged with
zoning districts. Zoning districts reflect the desired use of a property by identifying specific land
uses allowed on a parcel as well as the size of the parcel itself.
Zoning: Table 8.2 Zoned Acreage in Bu alo County shows the zoning classifications in Bu alo
County. These districts don’t necessarily reflect the actual use of the land. Instead, they are better
used to analyze the potential use of the land and the intended density of current/future
development. Note, before any comparison is made between 2013 and 2025 figures, the change in
standards of zoning districts must be considered. For a more accurate account of current land use
across Bu alo County’s landscape, refer to Table 8.1 Property Assessments.
See Map 8.5 Current Bu alo County Zoning Districts for a depiction of current countywide zoning
districts in Bu alo County.

Table 8.2 Zoned Acreage in Bu alo County, 2025
Municipality

Residential Agricultural Conservation Commercial Industrial

Total Acreage

5,327.8

334,739.4

38,283.0

491.4

3,107.6

% Of Total Land

1.39%

87.64%

10.02%

0.13%

0.81%

Bu alo County Zoning Department

Agriculture/Natural Resource (ANR) Land Use: Of the zoned land in Bu alo County (excluding the
conservation district), approximately 94% of it is in an ANR zoning district. Another 3% of land is in
an ANR Transition zoning district. This district acts as a bu er by limiting certain agricultural
activities near higher density development and promoting residential growth. These figures align

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with 2025 tax assessment data that identify about 97% of privately owned land across the county
as agricultural, woodland, or open space. When comparing the ratio of zoning districts to property
assessment data, Bu alo County’s current stance on future land use is well illustrated: a

desire to preserve forest and agricultural land while encouraging modest amounts of new
development.
This stance can allow for some flexibility considering future population projections. All of Bu alo
County’s ANR zoning districts allow for limited development, most of which restrict development to
one home per 40 or 20 acres. If the population of the county declines as predicted, limited new
development in ANR districts can meet the limited needs of the small population base without
significantly impacting agricultural lands. However, if non-farm populations rise or non-resident
vacation homes jeopardize the agricultural and forest lands of the county, the current density
standards should allow decision makers to react in time without significant impacts from
development.
Residential Land Use: The county has seen limited demand for development due to its relative
isolation from major population centers and major transportation arteries. Less than 2% of land is
zoned for residential use. There is no indication that housing will increase at a rate greater than it
has in the recent past with a trend of 2 or 3 homes expected to be built in each municipality each
year. Cost of job commute and limited job opportunities may also hinder additional housing
construction.
The Land Management Committee will welcome new development but attempt to direct it to the
most suitable areas indicated by county and municipal comprehensive planning e orts, striving to
maintain a balance between land uses and curbing land use that would have a detrimental impact
on future land use(s).
Commercial and Industrial Land Uses: nearly five square miles of land in Bu alo County has
been zoned for industrial use. Although the industrial zoning district has permitted uses such as
distribution businesses, light industry, and business o ices, most industrially zoned acreage is
located in nonmetallic mining sites around the county. The majority of nonmetallic mining sites are
rock quarries located on the tops of ridges and are typically dedicated to obtaining dolomitic
limestone for crushed rock applications.
Commercial and industrial development is expected to remain low due to the lack of railway,
interstate, and other critical utilities. Table 8.7 Real Estate Valuation Summary in 2024 Dollars,
provides a look at the value of land devoted to each land use type by Township.
Conservation Land Use: This zoning district is currently assigned to properties that are
inaccessible to future development in the foreseeable future. This includes for example, natural
areas, state parks, cemeteries. While land is increasingly being used for recreational purposes, the
restrictions that the conservation zoning district places on land make it an unattractive district to
any landowner seeking to hold land as an investment. Any additions to the conservation zoning
district would likely come from conversion of land into a state or county park.

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Land Use

Opportunities for Redevelopment: Redevelopment entails new construction or adaptive reuse of
buildings on developed sites with a pre-existing use, typically in urban spaces. The rural nature of
Bu alo County and its lack of idle industrial sites make opportunities for redevelopment rather
scant. However, if current industries continue to consolidate redevelopment may become a more
relevant strategy in the future.
Some examples of past redevelopment in Bu alo County include the numerous historic
schoolhouses and creameries scattered over the countryside now being used as private
residences. Abandoned railroad beds have also been converted to recreational trails.

Just as the country schools and local creameries of yesteryear consolidated, so do the
farms and agricultural service businesses of today. This means that there is a likelihood
that agricultural infrastructure will become increasingly idle soon. That infrastructure
located near highways or cities could become repurposed to other uses such as
warehousing or tourism. Examples already exist of poultry barns being used for self-storage
and barns being used for housing, lodging, and event spaces.

Land Demand and Prices
The average value of agricultural land sold in Bu alo County increased 486% from 1998 to 2023.
Between 2014 and 2023, 7,013 acres of agricultural land without buildings were sold in Bu alo
County and 361 acres were converted to other uses.

Number of
transactions

Acres Sold

Dollars per
acre

30

2,288

1,052

37

1,676

1,124

67

3,964

1,083

2000

29

2,651

1,201

34

1,595

1,306

63

4,246

1,240

2005

27

2,080

2,177

15

612

2,978

42

2,692

2,359

2010

17

1,141

2,941

8

260

2,965

25

1,401

2,945

2015

8

551

4,480

-

-

-

8

551

4,480

2020

19

1,041

3,940

2

76

3,874

21

1,117

3,936

2023

18

609

6,316

2

80

6,601

20

689

6,349

Dollars per
acre

1998

Acres Sold

Dollars per
acre

Total of all
agricultural land

Acres Sold

Agricultural land being
diverted to other uses
Number of
transactions

Year

Agricultural land
continuing in agricultural
use
Number
of
transactions

Table 8.3 Agricultural Land Sales (USDA , NASS Statistics Service)

Plan Implementation

98

Analyzing the demand for land and prices has proven challenging due to changes in record keeping
by the USDA NASS. At the time of this update, annual statistics at the county level were only
available for years 2014-2023, limiting the ability to ensure congruency between new data and the
data used in the 2013 Comprehensive Land Use Plan.
The method used in Table 8.6, giving ‘snapshots’ of land markets in Bu alo County using five year
increments, is not adequate to assess the average price over time, nor does it allow for a total count
of land transactions, acres sold, or acres diverted to another use. The USDA ceased providing
values and acreages of agricultural lands sold with buildings after the 2019 dataset.

Absentee Landowners
Over the past two decades, there has been rising concerns about the amount of land held
by non-community members, or absentee landowners. GIS and zoning sta reassed the
methods used in the 2013 Land Use Plan and found that 30.3% of land in towns is owned
by absentee owners. The change in methodology is described following the table below.
Table 8.4 Absentee Landowners in Unincorporated Areas (Bu alo County Treasurer’s O ice)
YEAR:

Total # of
Landowners

2025

# of
Absentee
landowners

Acres
owned by
absentee
landowners

Total
Acres

% of
absentee
owned
acres

27,625.67
23,217.05
20,267.17
23,175.65
24,193.42
23,271.36
23,366.23
28,788.58
23,720.52
26,622.53
17,167.60
23,324.10
20,850.74
30,369.53
22,797.70
48,602.49
28,086.13
435,446

42.5%
28.4%
40.8%
27.9%
31.6%
28.8%
32.3%
25.7%
44.5%
23.6%
25.7%
40.7%
27.9%
29.9%
25.1%
24.4%
21.8%
30.3%

(Estimate)

T. of Alma
T. of Belvidere
T. of Buffalo
T. of Canton
T. of Cross
T. of Dover
T. of Gilmanton
T. of Glencoe
T. of Lincoln
T. of Maxville
T. of Milton
T. of Modena
T. of Mondovi
T. of Montana
T. of Naples
T. of Nelson
T. Waumandee
Total
99

236
328
411
183
264
290
274
272
209
209
323
228
268
205
351
449
288
4,788

84
92
105
59
79
85
86
59
86
48
73
89
55
62
73
167
66
1,368

11,742.42
6,597.19
8,277.16
6,468.86
7,642.98
6,701.46
7,543.98
7,389.64
10,554.37
6,287.32
4,404.57
9,488.45
5,823.42
9,093.22
5,729.32
11,856.84
6,125.85
131,927

Land Use

The definition of absentee landowner was decided by the 2026 Comprehensive Land Use
Technical Committee to be any landowner with a primary residence that did not fall within
a zip code servicing Bu alo County. It should be noted that this definition includes
landowners living outside of Bu alo County, except for those with an Eleva zip code in their
mailing address. Defining absentee landowner in this way was done for two reasons: to
make a simple and replicable means of analysis and to provide inclusivity to those
landowners living just beyond the borders of Bu alo County. One disadvantage of this new
definition of absentee landowners is that our 2025 analysis cannot be used to accurately
compare absentee landowner estimates with those listed in the original 2013
Comprehensive Land Use Plan.
Previously, the 2013 Comprehensive Land Use Plan defined a landowner as “any
landowner with a primary residence that did not fall within the boundaries of Bu alo
County.” To illustrate why this definition was broadened in this plan update, consider the
following scenario: a resident of Blu Siding owns land near Urne and a resident of the City
of Arcadia owns land in the Town of Glencoe. It takes 50 minutes for the Blu Siding-Urne
landowner to reach their property from their primary residence while it takes the ArcadiaGlencoe landowner 10 minutes. Under the methodology used for this plan update, neither
landowner would be considered absentee; however, the methodology used in the 2013
plan would identify the Arcadia resident as an absentee landowner, despite their close
proximity to their Bu alo County property.
To determine the estimated number of acres of land owned by absentee landowners within
Bu alo County, GIS was used in conjunction with parcel data provided by the Treasurer’s
O ice. First, individual landowners and the number of acres under their ownership in each
town were established. The tax roll mailing address of each landowner was then filtered to
determine whether or not its zip code was one of the following: Alma, Arcadia, Cochrane,
Durand, Fountain City, Gilmanton, Independence, Mondovi, and Nelson. If not, the
landowner was considered to be ‘absentee.’ Because of the small number of landowners
on the border with Trempealeau and Eau Claire counties with an Elva address, this zip code
was excluded from the ‘local’ addresses and counted manually. This was done to include in
the absentee count the Eleva zip code landowners that held property in the interior of
Bu alo County.

Plan Implementation

100

Managed Forest Law (MFL)
Managed Forest Law (MFL) is a landowner incentive program that encourages sustainable
forestry on private woodlands in Wisconsin. Participants designate their property as ‘open’
or ‘closed’ to public access for recreation and commit to a 25- or 50-year sustainable forest
plan. In return for following specific forestry practices outlined in this plan, landowners
receive a significant reduction in property tax rates. The loss in tax revenue to the
municipality is intended to be o set by a yield tax from harvested timber.
There have been concerns that a connection exists between the increase in absentee
landowners and the increase in land enrollment in MFL. As more absentee landowners
have the available resources to purchase the land at the recent accelerated land prices,
they enroll in the MFL program as a means to reduce the amount of property taxes they pay.
Table 8.5 Total MFL Acres Over Time
2000
2005
2010
2015
2020
2024
T. of Alma
1,037.22
6,276.63
7,987.77
8,138.60
9,904.43 10,436.95
T. Belvidere
919.6
2,951.76
3,157.86
3,445.33
4,182.89
4,726.97
T. of Buffalo
200
1,351.20
1,622.99
1,985.10
2,142.28
2,283.45
T. of Canton
731.25
4,492.36
4,736.58
4,728.96
4,747.43
5,234.92
T. of Cross
992.93
3,572.39
4,837.22
5,740.25
6,345.10
6,725.18
T. of Dover
745.35
2,259.65
2,504.21
3,093.01
3,415.81
3,428.10
T. Gilmanton
936.1
2,425.24
2,471.50
2,674.80
3,292.62
3,902.67
T. of Glencoe
1,320.59
3,346.97
4,203.89
4,064.43
4,492.73
4,737.43
T. of Lincoln
2,594.74
5,771.04
6,567.32
6,320.91
6,962.99
8,032.80
T. of Maxville
772.45
3,602.97
3,875.94
4,308.63
4,237.34
4,358.99
T. of Milton
618.5
2,088.12
2,538.70
2,713.49
3,187.95
3,934.51
T. of Modena
2,546.91
4,233.31
6,029.49
6,040.99
6,632.10
7,271.82
T. Mondovi
723.6
1,628.70
1,997.99
2,071.99
2,392.20
2,280.93
T. of Montana
1,419.02
5,514.07
5,837.95
6,536.74
6,994.54
7,080.03
T. of Naples
247
1,288.83
1,733.63
1,903.13
2,081.13
2,128.13
T. of Nelson
2,741.69
7,263.35
8,285.00
8,552.03 10,217.93 11,510.07
T.Waumandee 1,783.95
5,714.12
6,090.89
6219.89
6503.89
6782.92
V. of Nelson
0
0
109.5
109.5
86.5
86.5
C. of Alma
0
0
381
381.33
628.51
789.81
C. Fountain C.
0
0
152.7
152.7
152.7
171.7
Total
20,330.90 63,780.71 75,122.13 79,181.81 88,601.07 95,903.88
(Bu alo County Treasurer’s O ice)

101

Land Use

In addition to the number of absentee landowners purchasing this land, there is an impact
on the amount of property tax that the property owners of the county pay because of the
land enrolled in MFL. Table 8.6 Comparison of Property Tax With and Without MFL
Enrollment, shows a comparison of the decrease in property taxes that are paid on land
enrolled in MFL. This table reflects only the county tax and county receipts. In addition to
this there are similar e ects at the Town level in relationship to their levy.

Table 8.6 Comparison of Property Tax With and Without MFL
Total MFL
Acres
Open &
Closed
2015 79,181.81
2020 88,601.07
2024 95,903.88

Property Tax if
Productive Forest

Property Tax from
MFL Acres

Missing
Taxes

$4,929,494.87
$6,367,769.90
$6,613,270.01

$395,323.47
$494,631.69
$586,788.66

-92.0%
-92.2%
-91.1%

Information obtained from Wisconsin DOR and Bu alo County Treasurer.
The property tax if the land was productive forest alone is the average tax rate across each municipality, times the acres enrolled in MFL
there.

It is important to understand that land enrolled in MFL does not decrease the amount of
revenue that a County would receive. It changes or increases the mill rate and redistributes the property tax. The e ect on the Town is similar.
There are additional sources of revenue that the county receives when land in the county is
enrolled in MFL. One source is a Resource Aid Payment for counties that have > 40,000
acres enrolled in MFL. This equates to a payment between $30,000 and $35,000 and based
on the number of acres enrolled in MFL. The state funds are always the same, however the
amount to each county changes each year based on the number of acres in relation to
what other counties have enrolled in the program. The other sources of funding to the
county include a Yield Tax, Withdrawal Tax and Annual Aid Payment.
These sources of revenue change each year as well and have never exceeded $65,000 per
year since the program began, including the MFL Tax from Table 8.5.

Plan Implementation

102

Use Value Assessment.
Use Value Assessment was created under the authority of 1995 Wisconsin Act 27 with a
change to state statute sec. 70.32, which governs the valuation of real property.
The goal of this legislation was to protect Wisconsin’s farm economy and curb urban
sprawl by assessing farmland based upon its agricultural productivity, rather than its
potential for development. Legislation requires that the assessed value of farmland be
based on the income that could be generated from it rental for agricultural use and income
and rental from farming are a function of agricultural capability. Because any land could
theoretically be used for agricultural purposes, statutes and administrative rules limit the
benefit of use value assessment to only those lands that qualify as “land devoted primarily
to agricultural use.”

Goals and Objectives
Tax load redistribution
Managed Forest Law (MFL) and its low tax assessment rates, need to be readjusted for the
wellbeing of the county. Continue to communicate with state representatives and visit
Madison to advocate for changes to the program.

Ensure safety of life and property
Ensure driveways to dwellings are being built to safe specifications. Towns have the ability
to enact driveway ordinances to ensure safe and reliable access to first responders and
utility service vehicles. Encourage all towns to enact such an ordinance and o er support
via the Towns Association.
When possible, take opportunities to reevaluate floodplain elevations that have been
established by FEMA. Also, consider new measures to be taken for structures proposed in
areas prone to flooding but not in a FEMA floodplain zone.
Work with the Highway Department to determine if anything can be done with tree
plantations immediately adjacent to roadways. Plantations of evergreens can cause drifts
and ice patches in winter, as well as obstruct a driver’s vision of wildlife.

103

Land Use

Plan Implementation

104

105

Land Use

Plan Implementation

106

107

Land Use

Plan Implementation

108

9
Plan Implementation

Element Overview
Implementation element. A compilation of programs and specific actions to be completed
in a stated sequence, including proposed changes to any applicable zoning ordinances,
o icial maps, or subdivision ordinances, to implement the objectives, policies, plans and
programs contained in any of the previous elements. The element describes how each of
the elements of the comprehensive plan will be integrated and made consistent with the
other elements of the comprehensive plan, and includes a mechanism to measure the
local governmental unit’s progress toward achieving all aspects of the comprehensive
plan. The element lays out a process for updating the comprehensive plan. This element
establishes that the comprehensive land use plan shall be updated no less than once every
10 years.
109

Plan Implementation

Action Items
Bu alo County’s Comprehensive Plan is intended to provide decisions makers, County
employees, and residents with a rational basis for how current and future development
should be shaped throughout the county. This element outlines a variety of actions
necessary to ensure the ongoing success of this plan and that the community’s needs have
and will continue to be addressed.
Major goals from chapters 2-8 have been identified and incorporated into the sequential
work plan below. This plan ensures integration of all major elements into an actionable
sequence of events in which all items are brought into conversation with decision makers
at the county level.
1 month after plan adoption: Begin work on updating the Bu alo County Farmland
Preservation Plan to monitor changes occurring to farmland in the county and ensure
continued eligibility to participate in the Wisconsin farmland preservation tax incentive
program. Investigate the opportunity to add additional towns into the program.
3 months after plan adoption: Make administrative revisions to the Bu alo County Zoning
Ordinance. Changes will be proposed at a public hearing before the Land Management
Committee. These changes are not meant to significantly alter land use controls, but rather
promote consistency in the current zoning ordinance and ensure that its original intent is
being met- ultimately strengthening the document.
4 months after plan adoption: Utilize the Land Management Committee to investigate
potential actions that could be taken to address concerns with Managed Forest Law.
Highlight any e orts that are already being taken by Bu alo County to make residents
voices heard in Madison.
5 months after plan adoption: Work with the Department of Health and Human Services
Committee to develop a status report on childcare training and licensing in the county.
Share this information with Towns Association and look for opportunities to improve.
6 months after plan adoption: Bu alo County’s representative to the Community
Development Block Grant will make e orts to deepen the county’s relationship with the
administrator of the program: the Chippewa County Housing Authority. The goal of this will
be to develop publications identifying available home repair grant opportunities and
revitalize awareness of the program in Bu alo County.
8 months after plan adoption: County Board Members are encouraged to meet
individually with town boards in their represented districts. The Bu alo County Highway

Plan Implementation

110

Committee and the highway commissioner should make arrangements to meet with the
entire Bu alo County Towns Association Unit
One year after plan adoption: Work with the Wisconsin Department of Agriculture Trade
and Consumer Protection to adopt a revised Bu alo County Farmland Preservation Plan.
Annually, each December: Minor updates made to the Zoning Ordinance, as the Zoning
Administrator sees fit. At this time, the Comprehensive Land Use Plan should be reviewed
and progress discussed with the Land Management Committee.

Consistency
As we have discovered with our 2018 zoning ordinance, consistency can be di icult to
achieve in extensive documents. To ensure that chapters, goals, and objectives are indeed
consistent with one another and the true intent of the plan, the Comprehensive Land Use
Plan will be reviewed annually prior to the December Land Management Committee
meeting. If any changes need to be made to the plan to ensure consistency, the plan will be
amended at the December meeting using the plan amendment process listed below.

Plan Adoption
Plan adoption, is in accordance with State of Wisconsin Statute 66.1001(4). The adoption
process includes enacting an ordinance of plan adoption, supported by the majority vote of
the County Board and requiring at least one public hearing at which the proposed
ordinance is discussed. The State of Wisconsin Statute 66.1001(4) requires the plan to be
updated once in every 10-year period after adoption.

Plan Amendment Process
The Department of Land Management, under the direction of the Land Management
Committee will oversee the plan amendment and update process. When the plan is in
need of an update or amendment, the Land Management Committee shall direct the Land
Management Committee to commence work on revising the plan. The Land Management
Department may also inform the committee of any deadlines or amendments that are
necessary. At a minimum, the plan should be implemented and updated according to Table
9.1 “Plan Update Calander 2026-2036.”
The Department of Land Management shall first assemble a technical committee of any
county employees and/or outside agencies (USDA, UW-Extension, etc.) who have expertise
in the elements contained in the plan. This technical committee shall be responsible for
writing a draft of the plan update/ amendment. It is highly recommended that a county
wide land use survey be made available to the public to obtain input as was done in 2024.
111

Plan Implementation

Table 9.1 Plan Update Calander
Plan Update Calander
2026-2036
2026-

Plan adoption. Begin work to achieve goals set in update.

Annually

Zoning Ordinance updates, review Comp Plan. County board members
should attend Bu alo County Unit Towns Association meeting.

2031

Land Mgt. employee attends towns association meeting to give
updates on goals and ordinance changes over past 5 years. Expedite
update process if towns wish.

2034

Conduct community survey. Have towns association get word out and
begin search for steering committee members. Assemble a technical
committee to begin plan writing.

2035

Meet monthly with technical committee members. Complete a draft of
the plan update. Assemble the steering committee.

2036

Finalize goals and objectives with the steering committee. Adoption of
plan update. A 30-day notice of public hearing is required prior to
taking action at a Land Management Committee Meeting.

In an e ort to develop a greater sense of intergovernmental communication, it is
recommended that County Board Supervisors meet annually with the town boards of the
communities in their respective district. County board members are also encouraged to
attend the annual Wisconsin Towns Association meeting for the Bu alo County Unit. It is at
this meeting that a steering committee should be assembled prior to a plan update. To
bolster participation, two chairs of the WTA are required to be members of the steering
committee.
At the meeting town representatives would select one representative for each of their five
regions so that all areas of the county would be covered (See Table 9.1 Steering Committee
Districts). In addition, the cities and villages would be asked to select two representatives

Plan Implementation

112

to serve on the Steering Committee. The Steering committee shall then be asked to review
the most current version of the comprehensive land use plan draft. It would be during this
review process that the Steering Committee is given the opportunity to meet with county
management and supporting agencies (DNR, USDA, and NRCS) to discuss current and
future development plans and answer any questions the committee may have. Following
these meetings, the steering committee is tasked with providing updates and
recommendations, particularly of goals and objectives, to the Technical Committee
(Department of Land Management) who will then incorporate the changes into the plan
draft.

Table 9.2 Steering Committee Districts
Region Name
Northeast
Northwest
West Central
South East

Municipalities Represented
Town of Mondovi, Naples, Gilmanton, Dover
Town of Maxville, Canton, Nelson, Modena
Town of Alma, Belvidere, Lincoln
Town of Montana, Glencoe, Waumandee

South
Town of Bu alo , Cross, Milton
City and Villages would select two representatives
A plan update requires a public notice that must be published at least 30 days prior to a
public hearing. Upon holding a public hearing and review of the plan by the Land
Management Committee, recommended amendments/ updates to the plan shall be
forwarded to the County Board. The County Board should then formally act on the
recommended amendment(s) based on public input, recommendations from the Land
Management Department, and Land Management Committee recommendations. If agreed
upon by the County Board, the update is then adopted by enacting an ordinance of plan
amendment, supported by the majority vote of the County Board.

Closing Remarks
In order to meet the goals and objectives laid out in this plan, portions of other planning
elements may overlap. As the county implements this plan, it should assess the impact of
each implementation e ort against the rest of the plan.
As with all public information derived from various sources, this plan may contain errors or
faults. Therefore, Bu alo County does not provide any warranty, expressed or implied, as to
the accuracy of this plan. The recipient is encouraged to make an independent
investigation or verification of any data or claims. If an error is found, it is requested that the
Bu alo County Dept of Land Management be advised so that the information may be
examined and corrected. Please refer to the disclaimer on page 64 as well.
113

Plan Implementation

Appendix
Chapter 1
Table A1.1 Population Projections for Buffalo County Municipalities
Municipality

Towns
Alma
Belvidere
Buffalo
Canton
Cross
Dover
Gilmanton
Glencoe
Lincoln
Maxville
Milton
Modena
Mondovi
Montana
Naples
Nelson
Waumandee
Villages
Cochrane
Nelson
Cities
Alma
Buffalo
Fountain
City
Mondovi
Total

1960

2000

2010

2020

384
456
737
479
395
491
617
528
401
493
271
555
511
445
584
1,005
649

377
442
667
304
366
484
470
478
187
325
517
318
449
306
584
586
515

297
396
705
305
377
486
426
485
162
309
534
354
469
284
691
571
472

455

435
395

450
374

1,008
484
934

942
1,040
983

781
1,023
859

7198
254
403
746
245
368
515
425
402
167
321
541
313
451
268
697
574
508
745
423
322
5374
716
1,007
806

2,320
14,202

2,634
13,804

2,777
13,587

2,845
13,317

Na

2030
Project.

2040
Project.

2050
Project.

227
341
713
214
350
509
400
359
159
308
517
274
420
242
676
560
498

200
280
674
183
330
497
372
316
150
293
489
235
388
216
649
541
483

384
287

343
252

654
950
737

590
887
666

5768
172
220
629
152
306
479
341
271
139
275
456
196
352
188
614
515
463
517
301
216
4390
523
816
591

2,741
12,520

2,611
11,645

2,460
10,675

%
Change
('20-'50)
-19.9
-32.3
-45.4
-15.7
-38.0
-16.8
-7.0
-19.8
-32.6
-16.8
-14.3
-15.7
-37.4
-22.0
-29.9
-11.9
-10.3
-8.9
-30.6
-28.8
-32.9
-18.3
-27.0
-19.0
-26.7
-13.5
-19.8

US Dept. of Commerce-Bureau of the Census with WI Dept. of Administration projections. Projected % change applied to 2020 census data.

Appendix

114

Table A1.2 County Racial/Ethnic Populations
Bu alo County
Race
White
Hispanic*
Black or African American
Asian
Native American and/ or Alaska Native
Native Hawaiian & Other Pacific Islander
Identified by two or more
Other
Total

Wisconsin

Population

%

Population

%

12,651
327
43
23
41
12
400
147
13,587

95.0
2.5
0.3
0.2
0.3
0.1
3.0
1.1

4,737,545
447,290
376,256
175,702
60,428
2,199
359,354
182,054
5,686,986

80.4
7.6
6.4
3.0
1.0
0.0
6.1
3.1

*An ethnicity, counted as a component of one or more races.
US Census Bureau, 2020

Table A1.3 County Labor Force Overview
Total population 16 years and over

11,048

Classification

# Employed

%

In Labor Force

6,968

63.1%

Civilian Labor Force – Employed

6,780

97.3%

Civilian Labor Force – Unemployed

180

2.6%

Armed Forces

8

0.1%

4,080

36.9% of total

Not in Labor Force

Table A1.4 Industries Served by Buffalo County Residents Over the Age of 16
Rank Industry

%
Employed
22.2%

1

Educational services, health care and social assistance

2
3

Manufacturing
Retail Trade

19.8%
9.9%

4

Agriculture, forestry, fishing & hunting, and mining

9.5%

5

Construction

7.8%

6

Transportation and warehousing and utilities

7.6%

7

5.1%

9

Professional, scientific and management and administrative and waste
management services
Arts, entertainment, and recreation and accommodation and food
services
Finance and insurance, and real estate and rental and leasing

10

Public administration

3.3%

8

4.6%
3.9%

U.S. Census Bureau- 2023 American Community Survey, 5-Year Estimates (DP03)

115

Appendix

Chapter 2
Table A2.1 Comparison of Population Density
Population
Density

Population
Total

Population
Density

2010

Population
Total
2020

Wisconsin

105.0

5,726,398

108.8

5,893,718

Bu alo County

19.9

13,587

19.7

13,317

Jackson County
Pepin County
Trempealeau Co.

20.7
32.2
39.3

20,449
7,469
28,816

21.4
31.5
42.0

21,145
7,318
30,760

Eau Claire County

154.8

98,736

165.7

105,710

Pierce County

71.5

41,019

73.5

42,212

Wabasha Co., MN

41.4

21,664

40.9

21,387

Winona County, MN

82.2

51,461

79.3

49,671

2000 US Census Bureau

Table A2.2 Monthly Housing Costs as a Percentage of Household Income
Owner

Rental

Household Income

Bu alo County

Wisconsin

Bu alo County

Wisconsin

Less than $20,000
Less than 20 percent
20 – 29 percent
30 percent or more
$20,000 to $34,999
Less than 20 percent
20 – 29 percent
30 percent or more
$35,000 to $49,999
Less than 20 percent
20 – 29 percent
30 percent or more
$50,000 to $74,999
Less than 20 percent
20 – 29 percent
30 percent or more
$75,000 or more
Less than 20 percent
20 – 29 percent
30 percent or more
Zero or negative income

8.4%
0.2%
0.7%
7.5%
8.9%
1.6%
2.3%
4.9%
11.4%
4.6%
2.0%
4.8%
18.2%
9.0%
4.8%
4.4%
52.8%
39.8%
10.6%
2.4%
0.4%

4.9%
0.2%
0.3%
4.4%
7.5%
1.4%
1.9%
4.1%
8.6%
3.2%
2.2%
3.3%
16.9%
8.5%
4.7%
3.8%
61.4%
47.9%
10.8%
2.7%
0.6%

25.4%
0%
7.9%
17.5%
12.2%
1.0%
2.0%
9.2%
15.2%
4.5%
5.0%
5.7%
19.4%
11.3%
7.5%
0.7%
14.3%
13.1%
1.1%
0.1%
0%

17.0%
0.2%
1.5%
15.3%
16.8%
0.8%
2.3%
13.7%
15.2%
1.6%
6.1%
7.4%
19.0%
7.0%
8.7%
3.3%
26.1%
20.4%
5.0%
0.7%
1.9%

Appendix

116

US Census Bureau| 2023 5 Year Community Survey| B25106

Table A2.3 Total Housing Units by Year and Municipality
T. of Alma
T. of Belvidere
T. of Bu alo
T. of Canton
T. of Cross
T. of Dover
T. of Gilmanton
T. of Glencoe
T. of Lincoln
T. of Maxville
T. of Milton
T. of Modena
T. of Mondovi
T. of Montana
T. of Naples
T. of Nelson
T. of Waumandee
C. of Alma
C. of Bu alo City
C. of Fountain City
C. of Mondovi
V. of Cochrane
V. of Nelson
Bu alo County

1980

1990

2000

2010

2020

137
182
277
115
118
158
176
175
109
125
173
154
166
107
182
263
193
438
425
389
1,031
209
176
5,478

157
218
263
109
118
147
173
171
106
120
181
148
183
113
190
237
193
414
447
410
1,082
216
190
5,586

157
222
277
112
141
156
180
180
106
123
227
155
165
116
231
265
198
495
492
470
1,232
197
201
6,098

171
219
316
126
165
199
190
208
123
152
253
161
200
122
278
291
217
488
577
467
1,303
234
204
6,664

166
223
343
108
166
196
192
187
98
143
261
152
210
114
266
286
215
479
555
442
1,289
222
193
6,506

US Census Bureau| 2020 Decennial Census| H1

Table A2.4 Age of Housing Units- 2023
Year Structure Built
Built 2020 or later
Built 2010 to 2019
Built 2000 to 2009
Built 1990-1999
Built 1980-1989
Built 1970-1979
Built 1960-1969
Built 1950-1959
Built 1940-1949
Built 1939 or earlier

Estimate
20
291
794
697
494
979
548
542
467
1,714

Percent
0.3
4.4
12.1
10.6
7.5
15.0
8.4
8.3
7.1
26.2

US Census Bureau| 2023 5 Year Community Survey| DP04

117

Appendix

2019
Number of Permits

Change of Use
to Dwelling

Recreational
Dwelling

Trailer Homes

Replacement
Dwellings

New Dwellings

Table A2.5 Housing Permits Issued 2019-2023

26

2

3

5

0

Median Value

186,900

205,400

48,700

43,350

—

Highest Value

713,000

224,000

132,800

90,800

—

Lowest Value

23,400

186,800

26,800

31,900

—

2020
Number of Permits
Median Value

14
188,950

4
275,000

0
—

1
8,900

2
129,550

Highest Value

516,300

277,200

—

8,900

152,100

Lowest Value

13,400

168,400

—

8,900

107,000

2021
Number of Permits
Median Value

18
181,300

2
237,400

2
49,000

2
19,650

0
—

Highest Value

344,000

314,400

52,100

28,000

—

Lowest Value

5,900

160,400

45,900

11,300

—

2022
Number of Permits
Median Value

23
287,900

4
252,800

1
28,000

6
20,900

1
119,800

Highest Value

783,000

411,100

28,000

60,608

119,800

Lowest Value

42,200

153,600

28,000

4,400

119,800

2023
Number of Permits
Median Value

17
246,600

4
167,200

4
51,700

1
8,600

0
—

Highest Value

569,700

458,200

54,700

8,600

—

Lowest Value

13,400

140,700

47,500

8,600

—

Bu alo County Department of Land Management Data- GCS Permit Tracking, 2025

Appendix

118

Chapter 3
Table A3.1 State/County/Town Certified Mileage
State Jurisdiction by
County Jurisdiction by
Municipal Jurisdiction
Gross State
% of County % of Municipal % of
System Arterial Collector Local Arterial Collector Local Arterial Collector Local
Municipality Name Miles Miles System Miles System Miles
T. Alma
47.18 8.45
18% 20.53
44%
18.20
39%
8.48
14.53 6.00
18.20
51.78 6.88
13% 14.11
27%
30.79
59%
6.88
14.11
2.43 28.36
T. Belvidere
48.78 7.52
15% 13.38
27%
27.88
57%
7.52
13.38
27.88
T. Buffalo
55.16 0.42
1% 25.31
46%
29.43
53%
0.42
17.04 8.27
29.43
T. Canton
53.55 8.81
16%
9.89
18%
34.85
65%
8.81
6.66 3.23
34.85
T. Cross
62.71 7.02
11% 18.15
29%
37.54
60%
7.02
15.53 2.62
2.05 35.49
T. Dover
50.76 14.68
29% 13.52
27%
22.56
44%
5.38
9.3
8.79 4.73
0.43 22.13
T. Gilmanton
68.34 6.80
10% 12.76
19%
48.78
71%
6.8
12.76
2.11 46.67
T. Glencoe
39.78 11.26
28% 16.47
41%
12.05
30%
11.26
9.85 6.62
12.05
T. Lincoln
T. Maxville
53.27 6.26
12% 25.36
48%
21.65
41%
6.26
5.25 20.11
21.65
37.49 7.47
20%
3.84
10%
26.18
70%
5.5
1.97
3.84
1.03 25.15
T. Milton
52.52 2.88
5% 26.64
51%
23.00
44%
2.88
19.00 7.64
23.00
T. Modena
51.10 9.68
19% 15.51
30%
25.91
51%
8.21
1.47
8.59 6.92
25.91
T. Mondovi
60.08 0.00
0% 24.03
40%
36.05
60%
18.11 5.92
6.00 30.05
T. Montana
T. Naples
61.77 7.56
12% 18.71
30%
35.50
57%
7.56
13.02 5.69
35.50
86.35 13.75
16% 36.85
43%
35.75
41% 13.75
14.34 22.51
35.75
T. Nelson
60.85 7.12
12% 11.90
20%
41.83
69%
7.12
11.90
41.83
T. Waumandee
5.79 0.62
11%
0.79
14%
4.38
76%
0.62
0.79
0.76 3.62
V. Cochrane
4.51 2.13
47%
0.07
2%
2.31
51%
2.13
0.07
2.31
V. Nelson
C. Alma
23.17 8.28
36%
3.49
15%
11.40
49%
8.28
1.71 1.78
0.63 10.77
21.62 0.10
0%
3.32
15%
18.20
84%
0.1
3.32
0.75 17.45
C. Buffalo City
15.94 6.06
38%
1.37
9%
8.51
53%
4.52
1.54
1.11 0.26
8.51
C. Fountain City
C. Mondovi
25.08 4.10
16%
1.85
7%
19.13
76%
4.1
1.85
0.70 18.43
Total Miles
1037.58 147.85
317.85
571.88
92.59
55.29 0.00
0.00
211.71 106.14
0.00
16.89 554.99
Target Goals as Percentage
of System (per DOT Criteria)
Current Percentage

119

State

County

Municipal

6-12%

18-24%

68-72%

14.2%

30.6%

55.1%

Appendix

Chapter 4
Table A4.1 CMAR GPA scale
Score

Grade

Grade Point

Grade Meaning

Response Range

100-91

A

4.0

Good

Voluntary

90-81

B

3.0

Satisfactory

Voluntary

80-71

C

2.0

Marginal

Recommendation

70-61

D

1.0

Poor

Action

<61

F

0.0

Fail

Action

Wisconsin Administrative Code NR 208.05

Table A4.2 County Facilities
Facility Name

Year of Original Structure

Additions and Renovations
Completion of additional storage building2015 Renovation of conference room-2015
------------------Completion of shop Renovation and addition2015

Alma Highway shop

1969

Urne Highway shop

1973

Mondovi Highway shop
Waumandee Highway Shop

1930
1978

Fountain City Highway Shop

1984

Completion of storage building-2024

Buffalo County Court House

1962

Southern addition (including jail)- 1988

Appendix

------------------

120

Chapter 5
Table A5.1 Change in Farm Size From 1910 to 2022
Year

No. of Farms*

1910
1920
1925
1930
1935
1940
1945
1950
1954
1959
1964
1969
1974
1978
1982
1987
1992
1997
2002
2007
2012
2017
2022

2,161
2,089
2,076
2,042
2,144
2,045
2,002
1,828
1,682
1,524
1,436
1,264
1,180
1,147
1,105
1,036
982
1,000
1,128
1,229
1,061
966
896

Average Size of
Farms (ac)
189
200
196
200
193
204
210
222
235
253
268
286
310
321
331
340
329
309
280
250
288
303
346

Land in Farms
(ac)
408,081
418,261
406,520
407,919
413,529
418,228
421,057
405,124
395,848
385,678
384,882
362,061
365,770
367,839
365,259
352,360
323,482
308,581
316,132
307,035
305,302
293,130
309,976

* A farm is defined by the USDA as any place from which $1,000 or more of agricultural products were
produced and sold, or normally would have been sold, during the year. This includes government payments
for programs such as the USDA’s conservation reserve.

121

Appendix

Table A5.2 Trout Streams in Bu alo County
Local Waterbody Name

Trout
Class

Armour Creek

Miles of
Trout
Stream
3.79

Bear Creek

2.5

CLASS III

Center Creek

4.35

CLASS II

Cooke Valley Creek

2.8

CLASS III

Danuser Creek

7.07

CLASS II

Deer Creek

4

CLASS II

Doelle Creek

5.07

CLASS III

Eagle Creek

5.6

CLASS II

Eagle Creek

8.47

CLASS II

Elk Creek

3.32

CLASS II

Elk Creek

13.19

CLASS II

Harvey Creek

2.36

CLASS III

Harvey Creek

1.45

CLASS III

Kilness Creek

4.05

CLASS III

Little Bear Creek

8.82

CLASS II

Little Waumandee Creek

11

CLASS II

Little Waumandee Creek

10.11

CLASS II

North Branch Little Bear Creek

5.4

CLASS II

North Branch Little Bear Creek

1.39

CLASS II

Hoyts Creek

0.72

CLASS III

Hoyts Creek

8.44

CLASS III

Rossman Creek

3.66

CLASS II

Elk Creek, South Fork

5.06

CLASS III

Sport Valley Creek

3.44

CLASS III

Spring Creek

2.88

CLASS II

Tamarack Creek

3.05

CLASS II

Tamarack Creek

1.87

CLASS II

Tamarack Creek

3.83

CLASS II

Traverse Valley Creek

2.86

CLASS II

Trout Creek

8.48

CLASS II

Botana Valley Creek

6.16

CLASS II

Newton Valley Creek (Shoe Creek)

4.27

CLASS II

Owen Valley Ck. (31-10) Trib. To North Branch Of Little Bear

2.16

CLASS III

Swinns Valley Creek

8.49

CLASS II

Unnamed Cr T24n R12w S5 (5-9)

3.27

CLASS II

Weisenbeck Valley Creek T23n R13w S2 (2-3)

5.15

CLASS II

Yeager Valley Creek

4.43

CLASS II

Waumandee Creek

6.92?

CLASS II

Appendix

Additional
Counties

CLASS II
Pepin

Trempealeau

Eau Claire

Trempealeau

Trempealeau

Pepin

122

Table A5.3 Public Parks in Bu alo County
Name

Type

Location

Attractions & Facilities

Merrick

State Park

Milton

Boating, fishing, picnic areas, pet-friendly area,
reservable shelters, wooden river stairway, wildlife
viewing.

Big Swamp Wildlife
Area

State
Wildlife Area

Canton

Hunting (rabbit, squirrel, deer), trapping, hiking, bird
watching, tamarack swamp, and upland hardwoods.

Nelson-Trevino
Bottoms

Wildlife
Area / State
Natural Area
State
Natural Area

Nelson

Wilderness hiking (short trail), large wildlife
populations, rare species, undisturbed floodplain
forest, and sloughs.
Wilderness hiking, limestone cliffs, bird watching,
connection to Thrive! Park

Tiffany Wildlife
Area

State

Nelson/
Maxville

Hunting, trapping, hiking/skiing (unmarked),
canoeing, rafting, primitive camping (permit only),
berry picking, bird watching.

Trempealeau River
Meadow

State
Natural Area

Cross

Whitman Dam
Wildlife Area

State

Near Lock and
Dam #5

Wetland/sedge meadow viewing, bird watching
(grassland species), deep-water marshes, and nature
photography.
Hunting (small game, deer, waterfowl), trapping,
hiking, wildlife viewing, and bird watching.

Buena Vista Park

Municipal

Alma

Buffalo City Park

Municipal

Buffalo City

Foelsch Riverside
Park
Goose Lake
Memorial Park
Harmonia Park
Memorial Park

Municipal

Buffalo City

Municipal

Cochrane

Municipal
Municipal

Waumandee
Mondovi

Mirror Lake

Municipal

Mondovi

Riecks Lake Park

Municipal

Alma

Sharps Point Park

Municipal

Mondovi

Thrive Park

Municipal

Nelson

Tourist Park

Municipal

Mondovi

Veteran’s Memorial
Park

Municipal

Buffalo City

Wandering Rock

123

Nelson

Scenic overlooks of the Mississippi River and
surrounding forests.
Tennis and volleyball courts, ice skating, picnic
shelters, playgrounds, and open grass areas.
10-acre woodland with meandering walking trails for
wildlife viewing.
Heated pool, picnic areas, and Canadian Geese
migration viewing.
Children's recreational area and picnic area.
Joseph Peterson Arboretum, shelters, volleyball, and
baseball/softball fields. (Pool/tennis nearby at school).
Playground equipment, picnic areas, shelters, and a
public boat landing.
Tundra Swan migration staging area, confluence of
Buffalo & Mississippi Rivers, and scenic sunrises.
Veteran’s Memorial and reservable shelters.
25-acre park with dog friendly bluff top trails offering
panoramic views of the Mississippi
Campsites (reservable), public shelters, historic log
cabin, and a museum.
Shelters, baseball/softball fields, and a concession
stand.

Appendix

Table A5.4 Endangered, Threatened and Species of Concern in Bu alo County
Common Name

Scientific Name

Group

Federal Status

Chlidonias niger
Acris blanchardi
Etheostoma chlorosoma
Ellipsaria lineolata
Crystallaria asprella
Sistrurus catenatus
Fusconaia ebena
Elliptio crassidens
Sterna forsteri
Hiodon alosoides
Lampsilis higginsii
Hybopsis amnis
Falco peregrinus
Plethobasus cyphyus
Alosa chrysochloris
Scutellaria parvula var. parvula
Cumberlandia monodonta

Bird
Frog
Fish
Mussel
Fish
Snake
Mussel
Mussel
Bird
Fish
Mussel
Fish
Bird
Mussel
Fish
Plant
Mussel

Species of Concern
Species of Concern
Listed Threatened
Listed Endangered
Listed Endangered
Listed Endangered

Vireo bellii
Eptesicus fuscus
Ictiobus niger
Cycleptus elongatus
Opuntia fragilis
Tritogonia verrucosa
Setophaga cerulea
Truncilla donaciformis
Ardea alba
Centronyx henslowii
Cirsium hillii
Geothlypis formosa
Myotis lucifugus
Theliderma metanevra
Polyodon spathula
Platanthera flava var. herbiola
Buteo lineatus
Moxostoma carinatum
Arcidens confragosus
Simpsonaias ambigua
Macrhybopsis hyostoma
Perimyotis subflavus
Cypripedium candidum
Gastrocopta procera
Glyptemys insculpta
Nyctanassa violacea

Bird
Mammal
Fish
Fish
Plant
Mussel
Bird
Mussel
Bird
Bird
Plant
Bird
Mammal
Mussel
Fish
Plant
Bird
Fish
Mussel
Mussel
Fish
Mammal
Plant
Snail
Turtle
Bird

Species of Concern
Species of Concern
Species of Concern
Proposed Endangered
Species of Concern
-

State Endangered Species
Black Tern
Blanchard's Cricket Frog
Bluntnose Darter
Butterfly
Crystal Darter
Eastern Massasauga
Ebonyshell
Elephant Ear
Forster's Tern
Goldeye
Higgins Eye
Pallid Shiner
Peregrine Falcon
Sheepnose
Skipjack Herring
Small Skullcap
Spectaclecase

State Threated Species
Bell's Vireo
Big Brown Bat*
Black Buffalo
Blue Sucker
Brittle Prickly-pear
Buckhorn
Cerulean Warbler*
Fawnsfoot
Great Egret
Henslow's Sparrow
Hill's Thistle*
Kentucky Warbler
Little Brown Bat*
Monkeyface
Paddlefish
Pale Green Orchid
Red-shouldered Hawk
River Redhorse
Rock Pocketbook
Salamander Mussel
Shoal Chub
Tricolored Bat*
White Lady's-slipper
Wing Snaggletooth
Wood Turtle
Yellow-crowned Night-Heron

State Species of Special Concern or Proposed Endangered
Blanding's Turtle
Emydoidea blandingii
Rusty Patched Bumble Bee
Bombus affinis
*On Wisconsin’s Sensitive Species List | WIDNR Data 2025

Appendix

Turtle
Bee

Species of Concern
Listed Endangered

124

Figure A5.1 Overview of Major Soil Series in Bu alo County

Bu alo County Wisconsin Soil Survey, NRCS, March 1962

125

Appendix

Figure A5.2 Landscape Cross Section and Soil Profiles of Major Soil Series in Bu alo County

Bu alo County Wisconsin Soil Survey, NRCS, March 1962

Appendix

126

Chapter 8
A Land Use History of Bu alo County
Early History: Long before the founding of Bu alo County in 1854, the native inhabitants of the area
took advantage of the region’s many waterways and established villages where canoes could be
utilized. In 1680, an Eastern Dakota village of about 1,000 people was reported on the banks of the
Mississippi, hunting bison up the Bu alo River.
It was not until the age of steamboats that the first substantial number of Europeans arrived in the
area. Steamboats making the trek up the Mississippi River in the 1840s were hungry for fuel,
sometimes burning one cord of wood per hour. Fuelwood was logged from the blu s and brought to
wood yards where steamboats were serviced. Two of these Mississippi wood yards eventually
became Fountain City and Alma. Perhaps, one could argue that fuel production and transportation
were Bu alo County’s first industries.
Early Transportation: Over time steamer tra ic increased, bringing with it additional trade and
residents to these developing settlements, eventually leading to the establishment of EuropeanAmerican agriculture in what would become the Town of Cross in 1850. Despite being the primary
land use in Bu alo County today, the growth of production agriculture was much slower than the
development of other industries in the county. The natural terrain of the county made road building
slow and tedious, constraining farms producing market-bound agricultural products to the initial
settlements near the river and leaving much of the interior of the county in its original state of mesic
prairie/ oak savanna for another quarter of a century. With time roads improved and technologies
changed, opening nodes of trade in Arcadia and Mondovi when railroad lines were constructed in
these communities. This led to a boom in commodity agriculture in the 1860s and 1870s, forever
changing the physical, economic, and cultural landscape of Bu alo County.
The early days of the automobile brought some change to Bu alo County as well. Milk hauling
became easier, further concentrating community development near the railroad and the
Mississippi River, forcing many local creameries in the interior of the county to close. Nonmetallic
mining operations also proliferated with the expansion of paved roadways. But the condition of
roads continued to limit travel into the 1930s when sections of state highway in the county were still
earthen road. It wasn’t until after World War II that Bu alo County reached its current epoch in
transportation and land use.
Modern Transportation: The advent of the interstate highway greatly shifted commercial
development away from the communities within Bu alo County. Rapid travel further reduced trade
nodes within the region, concentrating both river and railway access outside of Bu alo County. This
significantly reduced community development throughout the county. However, the opening of
interstate highways also brought the rural life of Bu alo County much closer to the commuter and
to the recreationist, something that would stir the residents of Bu alo County to grapple for formal
land use control in the 1960s.

127

Appendix

Development of Zoning in Bu alo County: According to an article in the Journal of Soil and Water
Conservation (1966), “undesirable land use changes alarmed the citizens of Bu alo County.” A
rapidly changing landscape prompted residents to ask the Bu alo County Board of Supervisors for
help in establishing a zoning ordinance to avoid growing land use problems such as: “[…] increased
nonfarm rural housing with septic tank problems, taverns located near schools and residences,
fishing and hunting cabins constructed on floodplains, and other objectional changes.”
Several UW extension agents and resource technicians assisted with the development of the
ordinance by identifying existing land uses and considering future land uses, establishing six
primary land use districts, each with three supplementary overlay district classifications: steep
soils, wet soils, and suitable soils. The overlay districts were created using soil survey maps and a
list of identifying individual soil map units was created for each of the three overlay districts. These
overlay districts provided additional controls based on the unique characteristics of each soil map
unit that might cause problems for a particular land use.
The 1965 Bu alo County Zoning Ordinance was unique at the time because it not only considered
the compatibility of neighboring land uses, but it also considered the compatibility of land uses
with the specific soil type located on a property. This resulted in a complex code that relied heavily
upon an accurate USDA soil survey and an active Board of Adjustment. The ordinance was far from
perfect, and this was known by its creators, but it came at a crucial time before the existence of
many state and federal environmental regulations, thus filling a void for land use controls when few
model ordinances existed.

Appendix

128

Undeveloped
Land

Agricultural
Forest

Productive
Forest Lands

*Other

Total

$15,016,600

$839,000

$0

$1,560,100

$948,550

$7,388,100

$4,879,600

$12,590,400

$43,222,350

Belvidere

$35,093,700

$2,457,600

$0

$1,734,100

$560,200

$6,730,400

$6,945,600

$13,800,200

$67,321,800

Buffalo

$59,458,200

$3,507,100

$112,100

$846,425

$1,331,400

$8,716,400

$6,597,500

$12,062,800

$92,631,925

Canton

$11,736,300

$31,200

$59,200

$2,078,550

$1,007,400

$6,157,200

$1,357,550

$10,514,600

$32,942,000

Cross

$26,780,200

$889,400

$0

$2,047,200

$1,623,350

$8,564,500

$5,021,800

$12,302,400

$57,228,850

Dover

$18,718,100

$403,900

$134,600

$1,678,518

$1,720,500

$4,270,800

$2,040,300

$7,513,700

$36,480,418

Gilmanton

$20,010,200

$1,105,600

$0

$1,940,700

$1,887,525

$8,133,000

$3,272,700

$8,900,500

$45,250,225

Glencoe

$10,359,200

$1,054,000

$447,200

$2,110,300

$283,200

$5,538,150

$2,217,200

$17,852,800

$39,862,050

Lincoln

$8,262,100

$392,500

$0

$1,956,900

$891,200

$8,857,200

$4,629,900

$8,855,800

$33,845,600

Maxville

$12,160,400

$516,900

$880,900

$2,095,200

$183,000

$11,728,000

$4,903,400

$12,415,000

$44,882,800

Milton

$61,991,400

$4,377,000

$532,400

$966,800

$1,253,800

$4,045,600

$2,379,400

$7,495,800

$83,042,200

Modena

$23,188,000

$1,298,400

$0

$2,233,050

$1,606,900

$9,442,400

$4,313,500

$7,828,400

$49,910,650

Mondovi

$33,395,700

$1,882,300

$619,900

$3,042,750

$1,100,500

$5,515,900

$3,587,200

$9,336,500

$58,480,750

Montana

$11,384,100

$74,200

$0

$2,394,700

$710,600

$8,914,600

$2,692,700

$14,805,900

$40,976,800

Naples

$38,521,200

$881,400

$0

$2,393,900

$2,302,450

$4,572,300

$1,550,700

$16,759,950

$66,981,900

Nelson

$38,760,200

$1,303,100

$639,400

$2,136,600

$3,523,150

$11,194,400

$5,887,350

$11,194,400

$74,638,600

Waumandee

$29,045,800

$3,057,000

$689,900

$2,790,600

$1,069,650

$7,326,900

$3,182,950

$19,277,600

$66,440,400

Total

$453,881,400

$24,070,600

$4,115,600

$34,006,393

$22,003,375

$127,095,850

$65,459,350

$203,506,750

$934,139,318

Commercial

Alma

Residential

Agricultural

Town

Manufacturing

Table A8.1 Real Estate Valuation Summary

Bu alo County Treasurer, 2024 Real Estate Valuation Summary (in thousands of dollars)
*Other is defined as the area in a parcel (improvements and land) not devoted primarily for agricultural use, such as house, barn, silo, road right-of-way and lawn around the house.

129

Appendix

Replacement
Single-Family
Dwelling

Change of Use
to SingleFamily Dwelling

Number of Permits
Mean Value

26
239,103

4
52,350

3
188,933

0
0.00

2
90,750

2
58,350

Highest Value
Lowest Value
2020
Number of Permits
Mean Value
Highest Value
Lowest Value
2021

713,000
31,900

96,900
2,000

224,000
156,000

0.00
0.00

132,800
48,700

84,200
32,500

16
199,338
516,300
13,400

1
40,900
-

5
263,300
346,100
168,400

2
129,550
152,100
107,000

0
-

1
89,000
-

Number of Permits
Mean Value
Highest Value
Lowest Value
2022
Number of Permits
Mean Value
Highest Value
Lowest Value

17
281,200
409,600
5,900

1
15,100
-

2
237,200
314,000
160,400

0
-

2
49,000
52,100
45,900

2
19,650
28,000
11,300

20
285,120
783,000
11,300

9
36,833
81,100
11,400

3
272,500
411,100
153,600

2
81,000
119,800
42,200

1
28,000
-

4
29,902
60,608
12,400

16
64,588
152,600
9,000

6
228,700
458,200
88,900

0
-

4
51,400
54,700
47,500

1
8,600
-

Recreational
Dwelling

Mobile Home

Addition to
Single-Family
Dwelling

New Single
Family Dwelling

Table A8.2 Zoning Permits by Dwelling Type

2019

2023
Number of Permits
18
Mean Value
258,468
Highest Value
569,700
Lowest Value
134,000
Buffalo County Permit Tracking Database

Appendix

130

Figure A8.1 Number of Conditional Use Permits Approved/ Denied Over Time

Conditional Use Permits
1965-2024
45
40
35
30
25
20
15
10
5

Number of CUP Approved

2023

2021

2019

2017

2015

2013

2011

2009

2007

2005

2003

2001

1999

1997

1995

1993

1991

1989

1987

1985

1983

1981

1979

1977

1975

1973

1971

1969

1967

1965

0

Number of CUP Denied

Permit Statistics Summary
Sanitary Permits
Average number of sanitary permits issued annually: 85
Average number of permits issued for replacement systems annually: 36
Average number of permits issued for new systems annually: 49

Zoning Permits
Average number of zoning permits issued annually since 1965: 107
Average number of zoning permits issued annually 1965-2017: 104
Average number of land use permits issued annually since 2018-2025: 130
Less than 0.5% of zoning/ land use permit applications had been voided, withdrawn or
denied since 1965.

Board of Adjustment Permits
Average number of annual conditional use permit (CUPs) hearings since 1965: 14
Average number of CUP hearings held annually 1965-2017: 16
Average number of CUP hearings held annually 2018-2025: 3
Average number of variance hearings held annually since 1965: 7
Average number of annual variance hearings 1965-2017: 8
Average number of annual variance hearings 2018-2025: 2

131

Appendix

Appendix

132

133

Appendix

Appendix

134

135

Appendix

of a property conveys no special status, rights or benefits to the owners. The Historical
Society lists 461 AHI records for Buffalo County. Contact the Wisconsin Historical Society
Division of Historic Preservation for more information about the inventory.
The Archaeological Site Inventory (ASI)- A collection of archaeological sites, mounds,
unmarked cemeteries, marked cemeteries, and cultural sites throughout Wisconsin.
Similar to the AHI, the ASI is not a comprehensive or complete list; it only includes sites
reported to the Historical Society. The Historical Society estimates that less than 1% of the
archaeological sites in the state have been identified. Wisconsin law protects Native
American burial mounds, unmarked burials, and all marked and unmarked cemeteries
from intentional disturbance. The Historical Society lists over 150 ASI records for Buffalo
County. Contact the Wisconsin Historical Society Division of Historic Preservation for
more information about the inventory.
The National Register of Historic
Places- is the official national list of
historic properties in America worthy of
preservation, maintained by the National
Park Service. The State Register is
Wisconsin’s official listing of state
properties determined to be significant
to Wisconsin’s heritage and is
maintained by the Wisconsin Historical
Society Division of Historic Preservation.
Both listings include sites, buildings,
structures, objects, and districts that are
significant in national, state, or local
history. There are currently 13 registered
places within Buffalo County.

Figure 5.8 The Fugina House in Fountain City is on the National
Register of Historic Places for its Prairie School style
Architecture (Jonathunder, 2014)

The establishment of a historical preservation ordinance and commission- is one of
the most proactive methods a community can take to preserve cultural resources. A
historical preservation ordinance typically contains criteria for the designation of historic
structures, districts, or places, and procedures for the nomination process. The ordinance
further regulates the construction, alteration and demolition of a designated historic site or
structure. A community with a historic preservation ordinance may apply for Certified
Local Government (CLG) status, with the Wisconsin State Historical Society. Once a
community is certified, they become eligible for:

Matching sub‐grants from the federal Historic Preservation Fund,

Use of Wisconsin Historic Building Code,

Reviewing National Register of Historic Places nominations allocated to the
state.

63

Agricultural, Natural, & Cultural Resources

While Alma and Fountain City both have historic preservation ordinances on their books,
no other local government in Buffalo County (including the County itself) has such an
ordinance. There are no Certified Local Governments in Buffalo County.

Disclaimer: Consistency Between Farmland Preservation and
Comprehensive Land Use Plans
The Bu alo County Farmland Preservation Plan shall be considered part of the Bu alo
County Comprehensive Land Use Plan, and therefore the documents must be internally
consistent. Though they may be adopted separately, the planning component of each shall
be considered the same document rather than two separate plans.
If there are any inconsistencies between the Bu alo County Farmland Preservation Plan
and the Bu alo County Comprehensive Land Use Plan, the Bu alo County Farmland
Preservation Plan shall supersede the Bu alo County Comprehensive Use Plan. This
applies to any inconsistencies that appear in maps or text contained in the plan. In the
event that any inconsistency is identified on a map, a note shall be added to the map
legends (farmland preservation and land use) explaining that the farmland preservation
plan takes precedence. If any inconsistency appears in text, the appropriate language shall
be added to the text where the inconsistencies are present.

Goals and Objectives
Continue to conserve Bu alo County’s soils
Bolster soil conservation initiatives by connecting existing producer led groups, staying
competitive in grant programs, and staying true to the county’s 10-year Land and Water
Resource Management Plan (2022-2031).
Update the Bu alo County Farmland Preservation Plan in 2027. Reach out to new towns to
see if they would be interested in joining farmland preservation (ANR-40) zoning. Recertify
both the farmland preservation plan and the farmland preservation zoning ordinance with
DATCP before December 31, 2028.

Agricultural, Natural, & Cultural Resources

64