Chapter 1

Chapter 1

ISSUES AND OPPORTUNITIES

1.1 Background

This is the first of nine elements that compose the City of Park Falls’ Comprehensive Plan. The nine elements are:

Issues and Opportunities

Housing

Transportation

Utilities and Community Facilities

Land Use

Agricultural, Natural and Cultural Resources

Economic Development

Intergovernmental Cooperation

Implementation

The City of Park Falls is located in northern Price County. Park Falls has a current population of about 2,700 people. There are 900,000 acres of federal, state, and county forests surrounding the city. Although it is a small community, there is and has been a great sense of pride in what accomplishments can be done and the materials available for use. Natural resources abundant with major industries being ones associated with wood, health care, metal manufacturing and tourism. Opportunities throughout the area are bountiful from a quality education to exploring the beautiful Chequamegon National Forest.

Below: Promoting tourism in Park Falls during the 1950’s.

Above: One of the first signs on Highway 13 entering Park Falls after World War II.

A. Geography

Park Falls is the largest community in Price County and is located in the northern end of the county. The city lies along the North Fork of the Flambeau River, at the intersection of State Highways 13 and 182. Nearby communities in Price County include Phillips, the county seat, which lies 18 miles to the south, and Fifield, an unincorporated community four miles south of Park Falls. Because of its proximity to Park Falls compared to surrounding municipalities in Ashland County, the Village of Butternut—located in southern Ashland County—uses Park Falls for shopping and work. The elevation is 1,530 feet above sea level. There are two kinds of topography in this Northern Highland region—upland plains and ridges. Lakes and swamps are prevalent. The Flambeau River travels through Price County and is a major attraction for all.

B. Climate

Park Falls has a continental climate type with four distinct seasons. Summers tend to be warm with an average July temperature of 70 degrees Fahrenheit and a growing season lasting about 85 days. Winters are cold with an average January temperature of 10 degrees Fahrenheit. The average rainfall accumulation is 33 inches and snowfall is 51 inches, double the national average. The latitude is 45.93 N and longitude is 90.45 W. The average annual wind speed is 10.5 miles per hour.

C. History

Wisconsin began under French control when Jean Nicolet discovered the land in 1634. They held control until the 1750’s when Great Britain took over with a flourishing fur trade. Settlers began arriving in the 1820’s and came for the lead mining and excellent farmland. During this time conflicts over land with the Native Americans arose, but after negotiations were made, settlement continued. Two men are acknowledged for founding Park Falls, John LeValley and William F. Turner. LeValley was the first man to search the area for timber while Turner set up the railroad track route and established Phillips, Fifield and Park Falls.

Chippewa roamed northern Wisconsin in the 1600’s and participated in the fur trade. The area now known as Price County was abounding with the resources needed to be successful, especially with the coveted beaver pelts. The furs were then sent on a waterway journey to Canada and throughout Europe. This brought an increase in the number of Canadians to northern Price County.

In addition to trading, people took advantage of fishing, collecting wild rice, turning sap into maple syrup, and berry picking. In fact, the Native Americans speared muskies which eventually led to the town’s first name of Muskellunge Falls. The food sources available and the location along the mighty Flambeau River made this a region that people would inhabit and to this day, provides an excellent opportunity for enthusiasts to enjoy the outdoors. The ruffed grouse (left) is a regular sight.

The history of Park Falls cannot be discussed without mentioning Henry Sherry, purchaser of the falls on the Flambeau River and adjacent lands in December 1885. Using his own innovation and the geographic location, railroad network and natural water power, Sherry chose Park Falls as the site for development. Within five years a dam, sawmill and pulpmill (pictured right) were built. Soon after, the infamous log drives began, and he built new companies along the river where logs were to be taken from the water and loaded onto trains. As an incentive to get workers, Sherry offered people enough wood to construct a house; however, Sherry’s establishments would not go without their share of problems. Many fires blazed through the sawmills and accidents were more common than one would hope for: Timber work was not an easy job. Numbing, rushing rivers, axes, fires and tree felling proved to be the greatest hazards.

Flambeau Crossing School, the first school in Park Falls, began on June 11, 1877. This was a log, one-room schoolhouse. Between 1901 and 1918 three schools were built: Washington, Lincoln and Jefferson. The top building in the picture to the right is Washington School, constructed from 1901-1902, and the bottom is Lincoln School, constructed in 1918. The names were given to inspire the children by honoring American Presidents during World War I. The first students to earn a high school diploma—Lily Cohen and Charlotte Galvin— were from Washington High School in 1907. At this time high school was a luxury and an expense because of the number of able people needed to work at the mill or at home on the farm. Enrollments increased greatly over the next several years due to mandatory attendance and child labor laws. For example, in 1920 the total number of students was 677 and by 1922 the number increased to 916. Over the next several years, many propositions were made and opposed until the building of a new elementary/high school was passed in 1977. Classes in Park Falls Elementary/High School began in January 1979, and the building continues today as the public K-12 school.

The first two medical doctors were Albert Gibson and George H. Haddy. They traveled throughout rural Price County tending to the sick, doctors going to patients. It was a difficult task with gruesome logging accidents and traveling by candlelight to cold, late night births. With a growing population and an increased number of loggers getting injured, a medical facility was needed. By 1910 Edwin Riley and his wife, both doctors and pictured left, built Park Falls Hospital containing 31 beds, a radiology room and an operating room. In 1931 Maude Murphy—a nurse—bought the hospital and added to it. Under Murphy, workers kept the facility opened during the Depression, providing care to people even when finances were not available. Park Falls Memorial Hospital opened in 1960 after land donations on Sherry Avenue were made but did not become Flambeau Medical Center, Inc. until 1977.

The renovated Flambeau Hospital, a Marshfield Medical Center, continues to be the heart of health care in the area. In addition to this clinic/hospital, Marshfield Clinic Park Falls Dental Clinic was opened in March 2008 and is one of four facilities that provide dental hygiene needs. The significance of this is enormous because care is given to all people, regardless of insurance or income levels, and focuses directly on the underserved that are denied service at private dental offices.

Park Falls has its own fire, rescue, and ambulance services. The ambulance service was formed in 1968 and the first run was on December 25 with a Pontiac stationwagon. It provided life support and transportation to Flambeau Hospital, covering over 600 square miles throughout Price and Ashland counties. The First Responder System began in the early 1980’s because of the difficulty in ambulances getting to places in the northwoods. This system, where a volunteer contact near the accident would be notified to provide assistance, was one of the first in Wisconsin and a model for all to follow. Partnering with the ambulance service, there is a crew of 40 volunteer firefighters at Park Falls Fire Station.

The Chequamegon-Nicolet National Forest, the combined name for the two areas, has been a source of beauty, recreation and wildlife for northern Wisconsin since being named in 1934. It was formed after millions of trees were cut in the 1800’s and early 1900’s with logging. The barren lands were granted to the government and restoration acts began immediately. The Chequamegon National Forest has had its headquarters in Park Falls since 1929 and continues to today (in addition to the Department of Natural Resources (DNR) headquarters).

The majority of land for the Chequamegon National Forest was purchased for $1.25 an acre and Price County was offered 157,000 acres. In 1934 Price, Sawyer, Bayfield and Taylor counties purchased 197,248 acres of land for $410,097. The Civilian Conservation Corps (CCC) formed March 31, 1933 to fulfill many projects dealing with fire, preservation, and restoration. It began as a group of young city boys being taught about the outdoors. Their efforts have made the Chequamegon-Nicolet National Forests more than old stumps; there are now 850,000 acres of Chequamegon National Forest surrounding Park Falls for all to benefit from.

With the newly established railroad tracks in 1877 hauling logs out, tourism was brought in. People from southern Wisconsin and Illinois came north to enjoy outdoor recreation. Resorts and hotels became popular. Butternut Lake was a common vacation spot with the Idlewild Hotel and the first summer housing subdivision on its banks in the early 1900’s. Today anglers still recognize the lake for its musky population. As can be seen from the photo on the right, workers from the Department of Natural Resources (DNR) take data after collecting and later releasing muskies.

In the winter Lawrence Gibson brought the first snowmobile to Park Falls in 1963 and opened a dealership. Groups like the Snow Gypsies formed in the 1960’s and continue today. Not until the 1960’s and 1970’s did an interest for cross-country skiing bloom with the DNR and Forest Service maintaining groomed trails. Tourism continues to grow, with a number of resorts located in the vicinity of Park Falls. The extensive network of trails in the area draws snowmobilers in the winter and ATVs in the summer. Park Falls’ reputation as the “Ruffed Grouse Capital of the World” attracts hunters from throughout the Midwest and East in the fall, while many other hunters also come to the area during white-tail deer season.

In 1896 Boyd’s Mason Lake resort was one of the first resorts opened in northwest Price County. Hugh Boyd and his family came from Canada to log; however, they seized the opportunity to create a tourist attraction. From 1895 to 1926 Hugh and his two sons built all 31 cabins and several lodges from hemlock. The old sawmill remains and these buildings are used as cabins today. It is one of the finest American Plan Family Resorts with historically preserved buildings and refurbished interiors.

D. Public Participation

The public participation plan to initiate Park Falls’ Comprehensive Plan will follow the duration of June 2008 through the fall of 2009. In July 2008 there will be a public meeting to discuss the Issues and Opportunities section of the plan. Summer 2008-2009 another public meeting will be held prior to the city council meeting when each of the nine elements is completed for public and city council comments. Fall 2009 a draft plan will be sent to DOA, NWRPC and the Park Falls Public Library. In the fall 2009 there will be a final public hearing prior to adoption and a Class 1 Notice to be held one month prior to adoption meeting. Prior to January 1, 2010, the city council will adopt the comprehensive plan.

E. Discussion of Issues

Throughout the nine elements, city issues will be discussed that are currently being pursued or planned. Some are problems that Park Falls and Price County are facing while others are improvements to existing buildings and utilities. The outline for these issues is:

1. Issues and Opportunities: Outline of issues addressed

2. Economic Development: Aging Population, Lack of Industrial Space, Adequate Employee Training

3. Housing: Affordability, Appearance and Maintenance, Elderly/Retiree and Subsidized/Special-Needs Housing Needs

4. Transportation:

5. Utilities and community facilities:

6. Agricultural, natural and cultural resources:

7. Intergovernmental cooperation:

8. Land use:

9. Implementation

F. City Survey

The Park Falls Comprehensive Plan Survey is shown with the results as Attachment #2. This survey was given to 15 people at the Park Falls Area Community Development Corporation (PFACDC) Board of Directors meeting who were asked to choose and rate the list of strengths and weaknesses of the city from one to five.

G. Planning Context

1. State of Wisconsin

On October 27, 1999 Wisconsin’s Comprehensive Planning Law was signed by former Wisconsin governor Tommy Thompson. This 20 year plan is used as a guide to local governments about land use decisions and future development.

Beginning on January 1, 2010, the below actions must be consistent with that local governmental unit’s comprehensive plan:

(a) Official mapping established or amended under s. 62.23 (6).

(b) Local subdivision regulation under s. 236.45 or 236.46.

(d) City or village zoning ordinances enacted or amended under s. 62.23 (7).

(e) Town zoning ordinances enacted or amended under s. 60.61 or 60.62.

(f) Zoning of shorelands or wetlands in shorelands under s. 59.692, 61.351 or 62.231.

The Comprehensive Planning Program was formed to assist communities develop and adopt comprehensive plans. Fourteen local comprehensive planning goals are suggested in section 16.965 of the Wisconsin statutes.

1. Promotion of the redevelopment of lands with existing infrastructure and public services and the maintenance and rehabilitation of existing residential, commercial and industrial structures.

2. Encouragement of neighborhood designs that support a range of transportation choices.

3. Protection of natural areas, including wetlands, wildlife habitats, lakes, woodlands, open spaces and groundwater resources.

4. Protection of economically productive areas, including farmland and forests.

5. Encouragement of land uses, densities and regulations that promote efficient development patterns and relatively low municipal, state governmental and utility costs.

6. Preservation of cultural, historic and archaeological sites.

7. Encouragement of coordination and cooperation among nearby units of government.

8. Building of community identity by revitalizing main streets and enforcing design standards.

9. Providing an adequate supply of affordable housing for individuals of all income levels throughout each community.

10. Providing adequate infrastructure and public services and an adequate supply of developable land to meet existing and future market demand for residential, commercial and industrial uses.

11. Promoting the expansion or stabilization of the current economic base and the creation of a range of employment opportunities at the state, regional and local levels.

12. Balancing individual property rights with community interests and goals.

13. Planning and development of land uses that create or preserve varied and unique urban and rural communities.

14. Providing an integrated, efficient and economical transportation system that affords mobility, convenience and safety and that meets the needs of all citizens, including transit–dependent and disabled citizens.

2. City of Park Falls

The City of Park Falls will use this comprehensive plan to identify strengths and weaknesses in the municipality and with public participation, develop the goals for improving community development. By having written objectives and a compiled plan, Park Falls will use this to be further prepared for the future and build a stronger, unified city.

Citizens from a variety of backgrounds were given numerous opportunities to provide valuable input—websites, newspaper, local meetings and a public hearing. With community assistance the most important strategies will be selected and developed. Efforts will continue so as to implement these ideas by an assigned group and by a set year.

This document will especially be of assistance in capitalizing on the positive assets in Park Falls and improving the weak points while appreciating the beauty and resources this community holds. Because Park Falls has not previously adopted a Comprehensive Plan, there is a sense of optimism with the impact these changes could make for Park Falls, Price County and Wisconsin.

In 1959 the Northwest Regional Planning Commission (NWRPC) was formed with the goal of providing economic assistance to counties in northern Wisconsin. Counties involved include Ashland, Bayfield, Burnett, Douglas, Iron, Price, Rusk, Sawyer, Taylor, and Washburn, in addition to several tribal nations. These development leaders work with the counties, tribal nations and local governments to improve economic conditions while keeping the public informed about the processes taking place.

The NWRPC has formed a Community and Economic Development Strategy (CEDS) new projects list for Park Falls. The 2008 to 2010 CEDS new projects list is included as Attachment #2. This information includes the project title and description, proposed year of implementation, estimated cost, estimated jobs retained/created and local priority ranking. Projects involve the Park Falls Paper Mill, sewers, roads, Park Falls Airport and apartment complexes. The completion of these are usually dependent on the amount of federal and state funding received in conjunction with the local priority rating.

In 1999 NWRPC prepared the Community Economic Development Plan for Park Falls, which was adopted by the Park Falls Common Council on February 10, 1999. This book was used for the following information with adjustments being made accordingly to bring the information up to date.

1.2 Demographics

A. Population

Population is an important contributing factor to the pattern of settlement and economic development of an area. Significant increases or decreases in the number of residents, along with the population characteristics of age, education, and income all impact the city’s economic development, land use, utility, transportation, housing, and recreational needs.

Population Change

On March 12, 1912, when Park Falls was incorporated as a city, the population numbered approximately 2,000. Since that time, the population has fluctuated as shown in Figure 1.

Figure 1

Population Trends, 1920-2000

	1920	1930	1940	1950	1960	1970	1980	1990	2000
Park Falls	2,676	3,036	3,252	2,924	2,919	2,953	3,194	3,102	2,793
Price Co.	18,517	17,284	18,467	16,344	14,370	14,520	15,788	15,600	15,822
Wisconsin	2,632,700	2,939,000	3,137,600	3,434,600	3,951,800	4,417,900	4,705,800	4,891,800	5,363,675

Source: U. S. Department of Commerce, U. S. Census Bureau

Following a drop between 1940 and 1960, Park Falls’ population increased for a period of time. In 1980, the population began to show a downward trend once again. The decrease between the years of 1940-1960 was fairly typical in rural northern Wisconsin, although the state’s population as a whole increased during the same period. The decrease in population starting in 1980 seems to be continuing its downward trend with the Department of Administration’s current population estimate for Park Falls to be 2,657.

Current studies have shown that residents that move to the area are generally older, while those who leave are more often high school graduates, which means that the trend is toward an older population that will outnumber a younger population in future years.

Population Projections

Population projections by the Wisconsin Department of Administration indicate a slowing in population growth for the city beginning in 2000, while the county population fluctuates slightly until 2010 and then begins a steady decline, Figure 2 below.

Figure 2

Population Projections 2000-2010

	2000	2005	2010	2015	2020	2025
City of Park Falls	2,793