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A book of county facts, 3rd Edition

THE

GREENBOOK

A publication of Forward AnalyticsA Division of the Wisconsin Counties Association

2020

2020Prepared by

Forward AnalyticsA division of the Wisconsin Counties Association

i

Table of Contents

Forward ................................................................iiIntroduction ........................................................iiHow to Use This Book ..................................... iii

Wisconsin’s Counties .........................................1County Government in Brief ..............................1County Map ........................................................2County Board Size ..............................................3County Administration .......................................4

Population ............................................................7Population Change ..............................................8Working-Age Population ..................................10Senior Population .............................................12School-Age Population .....................................14Veterans ............................................................16Educational Attainment ....................................18Commuting .......................................................20

Finances ..............................................................23Total Spending ..................................................24Highway Expenditures .....................................26Health & Human Services. ...............................28State Aids ..........................................................30Property Tax Levy ............................................32Property Tax Rates ............................................34County Sales Taxes ...........................................36County Debt ......................................................38

Economy/Development ....................................41Personal Income ...............................................42Employment Growth ........................................44Unemployment .................................................46Poverty ..............................................................48Property Values .................................................50New Construction .............................................52County Highway Miles .....................................54

Population Appendix ........................................57Population 2018 ................................................58Population 2019 ................................................59

ii

Wisconsin counties are vital to a growing and prospering state.

They help protect the state’s most vulnerable citizens and maintain thousands of miles of state and county highways. County governments provide a vast array of other services as well, and they do so in the most efficient and cost-effective manner possible.

To successfully carry out their mission, county officials must employ long range, strategic think-ing. Data plays an important role.

To this end, Forward Analytics, a division of the Wisconsin Counties Association, is pleased to present the 3rd edition of The Green Book, A Book of County Facts.

Included in the fact book is information on county government structure, county demograph-ics, finances, job growth, and new construction.

New this year is a section with county popula-tions so users can turn the per capita figures into totals when needed. Additionally, at the back of the book is a pull-out that contains all of The Green Book data for your county.

Counties can use the data contained in The Green Book for a variety of purposes including gauging future service needs, economic development plan-ning, and forecasting revenues and expenditures.

The Green Book is also available online at www.forward-analytics.net. If you would like ad-ditional copies to share, give us a call at 608-663-7188.

I hope you find this tool useful as you continue to make Wisconsin’s counties wonderful places to live, work, and prosper.

Mark D. O’Connell, Executive DirectorWisconsin Counties Association

Introduction

iii

How to Use This BookThe Green Book is organized into four color-coded sections, each with a variety of measures:

� Wisconsin’s Counties (orange) has informa-tion on county administration and board size.

� Population (blue) shows population change, the size of various age cohorts, veteran popu-lation, educational attainment, and commut-ing patterns.

� Finances (red) includes information on county revenues, spending, and debt.

� Economy/Development (purple) highlights jobs and unemployment, income and poverty, property values, and county highway miles.

Most measures have information on two pages. On the first page is a color-coded map that organizes counties into four groups of 18 (quartiles). For each measure, the 18 counties with the lowest numbers are shown with the lightest color, the 18 with the highest numbers are darkest. The key below the map shows the ranges for each quartile.

The second page displays a table of detailed in-formation for each county. The statewide average and median (half of counties lower, half higher) are shown below the table.

For those unfamiliar with county locations, a map can be found on page 2.

New this year is a county insert found in the back of the book. This handy document summarizes your county’s information on all of the measures in The Green Book. For each measure, it also shows the county’s rank among the 72 counties as well as the state average.

1

Wisconsin’s Counties

Wisconsin has 72 counties whose bound-aries were drawn by the legislature and are specified in state law. Generally,

county boundary lines run north to south and east to west or follow major physical features.

Counties are governed by a county board of supervisors who are elected for two-year terms. While a “self-organized” county can opt to have supervisor terms concurrent or staggered, none have chosen the latter option. Thus, all supervisors are elected in the spring election of even numbered years. Each county determines the size of its board, subject to a statutory maximum that is based on county population. The number of supervisors can be reduced once between each decennial census by resolution or by citizen petition and referendum.

Counties must have a central administrative of-ficer. A county can create an office of county ex-ecutive or county administrator, or it can designate an individual holding an existing elective or ap-pointive office (other than county supervisor) to also serve as the administrative coordinator.

County constitutional officers are elected to four-year terms in the fall partisan general election. These include the county clerk, county treasurer, register of deeds, clerk of circuit court, and sheriff.

Counties provide a variety of services, many of which are state mandated. They enforce the state’s criminal laws and incarcerate many viola-tors of those laws. County clerks and registers of deeds maintain state-mandated vital and property records, and the clerks oversee elections. County human services departments administer state fam-ily and human service programs, while highway departments maintain both county and state roads.

County Government in Brief

2

Wisconsin’s Counties

Douglas Bayfield

Ashland

Iron

Vilas

OneidaForest

Florence

Marinette

OcontoMenominee

LangladeLincoln

Marathon Shawano

Wood Portage Waupaca Outagamie Brown Kewaunee

Door

Manitowoc

Juneau

AdamsWaushara

Marquette

GreenLake

WinnebagoCalumet

Sawyer

Price

Rusk

Taylor

Washburn

Burnett

Polk

St. Croix

Pierce

Barron

Dunn

Pepin

Chippewa

Eau ClaireClark

Buffalo

Trempealeau

Jackson

La Crosse Monroe

Vernon

Crawford

Grant

Richland Sauk Columbia Dodge

Washington

Fond du Lac Sheboygan

Ozaukee

Iowa Dane Jefferson Waukesha Milwaukee

Lafayette Green Rock WalworthRacine

Kenosha

Wisconsin County Map, 2020Metropolitan, Micropolitan, Neither

Metropolitan Micropolitan

One way to characterize Wisconsin counties is by how urban or rural they are. Urban counties can be thought of as part of a metropolitan statistical area, or MSA, which is a group of counties with close economic ties and relatively high population at its core. Twenty-six counties in Wisconsin are part of an MSA. A micropolitan statistical area is a county or group of counties (sometimes from different states) with close economic ties and centered on an core area of 10,000 to 50,000 people. Fourteen counties fall into this category. The remaining 32 counties are neither metropolitan or micropolitan. Most economic researchers consider micropolitan and “neither” counties rural.

County Map

Neither

3

Maximum county board sizes are set by state law and depend on population. Some county boards are smaller due to board policy or approval by voters in a referendum. The average number of residents per county board member varies widely, from few-er than 1,000 in 14 counties to nearly 53,000 in Milwaukee County.

Board Size and Population Per District, 2019(in thousands)

County Board Size

AdamsAshlandBarronBayfieldBrownBuffalo

BurnettCalumetChippewaClarkColumbiaCrawford

DaneDodgeDoorDouglasDunnEau Claire

FlorenceFond du LacForestGrantGreenGreen Lake

IowaIronJacksonJeffersonJuneauKenosha

KewauneeLa CrosseLafayetteLangladeLincolnManitowoc

202129132614

212115292817

373321212929

122521173119

211519302123

202916212225

1.00.81.61.2

10.11.0

0.72.54.31.22.01.0

14.52.71.42.11.53.6

0.44.20.43.11.21.0

1.10.41.12.81.37.4

1.04.11.11.01.33.3

MarathonMarinetteMarquetteMenomineeMilwaukeeMonroe

OcontoOneidaOutagamieOzaukeePepinPierce

PolkPortagePriceRacineRichlandRock

RuskSt. CroixSaukSawyerShawanoSheboygan

TaylorTrempealeauVernonVilasWalworthWashburn

WashingtonWaukeshaWaupacaWausharaWinnebagoWood

383017

71816

312136261217

152513212129

191931152725

171729211121

262527113619

3.61.40.90.6

52.62.9

1.31.75.23.50.62.5

3.02.91.19.40.95.5

0.84.72.01.11.54.7

1.21.81.01.09.50.8

5.316.2

1.92.24.74.0

CountyBd.

SizePop./Dist. County

Bd.Size

Pop./Dist.

4

Wisconsin provides counties with three options for the daily management of county government. A county executive

is elected every four years in nonpartisan spring elections. The executive appoints certain person-nel, submits budgets, and exercises veto powers. A county administrator is appointed by the county board and has powers similar to an executive, as determined by the board. Administrators do not have veto power.

Counties not choosing one of these two options are required to designate an administrative coordi-nator, either on a full-time or part-time basis.

In 2020, 12 counties had an elected county ex-ecutive and 28 had a county administrator. The re-maining 32 counties designated either a full-time (10) or part-time (22) administrative coordinator.

County Administration

Administration Type, 2020

Source: Wisconsin Counties Association, 5/1/20

Administrator Type

P.T. Admin. Coordinator

F.T. Admin. Coordinator

Administrator

Executive

5

Administration Type, 2020

Exec. = Executive; Admin. = AdministratorCoord. = Administrative Coordinator; pt = part-time; ft = full-time







Coord.-ftAdmin.Admin.Admin.

Exec.Coord.-ft

Admin.Admin.Admin.

Coord.-ptCoord.-ptCoord.-pt

Exec.Admin.Admin.Admin.

Coord.-ftAdmin.

Coord.-ptExec.

Coord.-ptCoord.-ptCoord.-pt

Admin.

Admin.Coord.-ptCoord.-pt

Admin.Coord.-pt

Exec.

Admin.Admin.

Coord.-ptCoord.-ftCoord.-ft

Exec.

County Type







Admin.Admin.

Coord.-ptCoord.-pt

Exec.Admin.

Coord.-ftCoord.-pt

Exec.Admin.

Coord.-ptCoord.-ft

Admin.Exec.

Admin.Exec.

Admin.Admin.

Coord.-ftAdmin.

Coord.-ftAdmin.

Coord.-ftAdmin.

Coord.-ptCoord.-ptCoord.-ptCoord.-pt

Admin.Coord.-pt

Exec.Exec.

Coord.-ptAdmin.

Exec.Coord.-pt

County Type

7

County population can be viewed from a variety of perspectives. Is it growing or declining? What is the age composition?

What levels of education do residents have? Where do they work?

Understanding the characteristics of county de-mography can help policymakers gauge a region’s social and economic well-being, its potential for growth, and the degree to which current and future service demands will be placed on county govern-ment.

Seven demographic measures are provided here. Although presented separately, some of these mea-sures tend to move together and some tend to be clustered geographically.

Counties whose populations are growing the fastest tend to be younger, with a larger portion of their population of working age. In growing areas, more residents tend to have post-secondary degrees, either at the associate or bachelor’s lev-el. This, in turn, can attract employers and ensure better-paying jobs that serve as a magnet to attract workers from other counties.

The reverse is also true. Counties with aging populations often grow more slowly and are more likely to face worker shortages. As the maps on the following pages reveal, such counties tend to be located in the north, in the central part of the state, or to the southwest.

POPULATION

8

Population Change, 2014-19Counties by Quartile, Low to High Percent Change

For counties, population change has both eco-nomic and service implications. Changes in the number of residents can result from

both internal and external factors. Natural popula-tion change (internal) is the difference between the number of births in a county and the number of deaths.

Migration (external) also affects population. Net migration is the difference between the number of residents moving out of a county and the number moving in. A growing population spurs local busi-nesses and demand for public services. A shrinking population can mean less economic activity and a smaller tax base.

Population Change

Source: Wisconsin Demographic Services Center

Change: Low to High

1st Quartile To 0.40%

2nd Quartile0.41-0.84%

3rd Quartile0.85-1.83%

Top Quartile1.84% & over

9

Statewide Measures

Population Change, 2014-19

Average 1.93% Median 0.84%







-1.03-0.780.981.833.670.83

0.406.642.920.150.860.25

6.980.932.410.621.602.67

0.561.95

-0.630.670.720.58

0.37-0.360.980.721.111.68

0.632.350.521.200.490.40

County % Change







1.27-0.49-0.060.68

-0.363.65

2.010.563.933.20

-0.192.68

0.681.130.430.520.070.21

0.874.621.911.30

-0.201.03

0.562.671.491.281.190.50

3.433.37

-0.130.021.410.66

County % Change

10

Percentage of Population 25 to 64, 2018Counties by Quartile, Low to High Percent

Counties with more workers than students and seniors often have higher per capita incomes. This demographic situation gen-

erally means there are a greater number of wage earners over which to spread the cost of public ser-vices and, likely, fewer residents in need of county services.

In 2018, residents 25 to 64 years of age (prime working ages) accounted for 51.6% of Wisconsin’s population, down from 52.7% three years earlier. As the senior population grows rapidly for the fore-seeable future, this percentage will continue to fall.

Working-Age Population

Source: U.S. Census Bureau

Percent: Low to High





11

Percentage of Population 25 to 64, 2018

Statewide Measures








50.949.049.549.252.250.2

48.153.652.945.953.449.0

52.454.848.153.045.947.9

54.151.749.044.752.248.1

51.648.751.952.753.053.4

50.747.849.249.853.451.5

County % 25-64







51.950.650.444.252.950.5

53.050.753.350.249.948.6

51.647.750.152.048.251.7

48.853.651.248.450.751.6

50.750.047.547.048.848.9

52.852.151.951.251.450.7

County % 25-64

12

Percentage of Population 65 or Older, 2018Counties by Quartile, Low to High Percent

Like the nation, Wisconsin is experiencing the retirement of the baby-boom generation (those born between 1946 and 1964). Their

retirement will adversely affect the local labor force. Additionally, as this large group ages, a de-mand for assisted living, nursing homes, and other social services will rise.

Residents 65 or older accounted for 17.0% of the state’s population in 2017 and were located dis-proportionately in less populous counties. In 55 of 72 counties, the senior share of the population was above the state average. In 11 counties, seniors ac-counted for more than a quarter of the population.

Senior Population







13

Percentage of Population 65 or Older, 2018

Statewide Measures








29.119.621.927.714.922.1

28.615.118.016.617.923.2

13.717.629.818.615.715.7

26.018.523.017.318.722.2

18.830.919.017.020.314.1

20.416.418.724.021.520.5

County % 65+







17.723.824.513.213.617.0

20.426.014.719.722.414.6

20.616.725.716.522.916.6

24.214.118.525.921.118.0

19.118.119.530.817.726.3

18.018.720.924.416.420.6

County % 65+

14

School-Age Population

It is often said that the youth of today is the workforce of tomorrow. For counties, the num-ber of young people represents a potential fu-

ture workforce. However, some of them will even-tually leave for college and may not return. This has been true in much of rural Wisconsin.

Residents ages 5 to 19 accounted for 18.9% of the state’s population in 2018. In 11 rural counties, that percentage was under 16.0%. Moreover, the school-age population is declining in many coun-ties, creating challenges for the schools there.

Percentage of Population 5 to 19, 2018Counties by Quartile, Low to High Percent







15

Percentage of Population 5 to 19, 2018

Statewide Measures








12.619.318.114.520.017.4

15.020.718.623.818.017.8

17.917.314.117.420.218.8

12.218.516.520.918.818.9

19.213.617.919.216.620.1

18.519.120.516.515.417.5

County % 5-19







19.016.316.126.919.920.7

17.314.219.719.017.221.0

17.818.915.519.318.719.5

17.020.818.716.218.018.9

19.620.021.414.019.316.0

18.818.717.215.318.117.9

County % 5-19

16

Percentage of Adult Population: Veterans, 2018Counties by Quartile, Low to High Percent

Veterans

Each of Wisconsin’s 72 counties has a veter-ans service office to assist veterans in navi-gating the complicated network of state and

federal benefits. The size of the veteran population varies widely by county.

Statewide, veterans comprised 8.2% of the 18-or-older population in 2018. However, in 29 mostly rural counties, that percentage was above 10%. The state’s two largest counties had signifi-cant numbers of veterans, but they comprised a relatively small percentage of the population.

Source: U.S. Department of Veterans Affairs






17

Percentage of Adult Population: Veterans, 2018

Statewide Measures


AdamsAshland

BarronBayfield

BrownBuffalo

BurnettCalumet

ChippewaClark

ColumbiaCrawford

DaneDodge

DoorDouglas

DunnEau Claire

FlorenceFond du Lac

ForestGrant

GreenGreen Lake

IowaIron

JacksonJefferson

JuneauKenosha

KewauneeLa CrosseLafayetteLanglade

LincolnManitowoc

13.3211.0610.3212.41

8.179.45

14.107.479.728.219.499.73

5.718.38

10.1710.92

7.877.99

15.498.47

12.917.637.879.22

8.4114.0910.71

8.9511.298.01

8.308.057.64

10.5611.039.34

County % Veterans

MarathonMarinette

MarquetteMenomineeMilwaukee

Monroe

OcontoOneida

OutagamieOzaukee

PepinPierce

PolkPortage

PriceRacine

RichlandRock

RuskSt. Croix

SaukSawyer

ShawanoSheboygan

TaylorTrempealeau

VernonVilas

WalworthWashburn

WashingtonWaukeshaWaupaca

WausharaWinnebago

Wood

9.1713.6912.34

9.596.60

15.16

10.4012.37

8.367.079.777.35

10.308.21

11.768.469.339.58

11.718.019.19

12.2610.08

7.94

9.188.639.22

12.877.92

12.74

8.136.97

11.0211.279.16

10.62

County % Veterans

18

Percentage with Associate Degree or More, 2018Counties by Quartile, Low to High Percent

Well-paying jobs increasingly require post-secondary education, be that an as-sociate, bachelor’s, or advanced degree.

The percentage of a county’s 25-or-older popula-tion with at least an associate degree indicates the availability of a skilled workforce demanded by today’s employers.

Residents with at least an associate degree com-prised 40.2% of the population statewide in 2018, up from 36.4% in 2013. They were concentrated in urban counties, often with two- or four-year uni-versities.

In seven less populous counties, residents with at least an associate degree accounted for under 25% of the population.

Educational Attainment







19

Percentage with Associate Degree or More, 2018

Statewide Measures








20.734.333.442.742.330.5

31.342.335.921.536.229.3

60.627.441.436.639.846.8

27.734.526.836.035.329.7

37.034.324.836.423.435.7

31.547.831.227.530.431.7

County % Assoc. +







39.024.824.528.238.330.6

27.038.141.656.930.640.0

33.042.929.135.129.033.0

27.248.235.235.027.735.0

25.132.633.536.936.734.7

41.953.430.423.538.134.1

County % Assoc. +

20

Net In-Commuting, Percentage of Labor Force, 2015Counties by Quartile, Low to High Percent

Commuting in or out of a county can be the result of many factors. Workers typically seek high-paying jobs. Many also choose

to live in locations with particular amenities, e.g., good schools, affordable housing, and parks and recreation. The place with good jobs may be in dif-ferent from the one with amenities, which results in commuting.

Here, net commuting is measured as the num-ber of commuters into a county minus the number commuting out as a percentage of the total county workforce. A positive figure indicates the county attracts more workers than the number leaving.

Commuting



1st Quartile To -21.0%

2nd Quartile-20.9% to -9.9%

3rd Quartile-9.8% to 2.7%


21

Net In-Commuting, Percentage of Labor Force, 2015

Statewide Measures

Average -1.5% Median -9.9%







-34.213.9

0.8-27.013.9

-37.8

-15.2-41.9-14.2-13.6-24.9

2.7

12.2-14.1

-4.0-13.8-14.111.9

-33.9-7.3-6.1

-14.2-11.5-8.4

-6.9-21.0

-9.9-22.7

-9.8-21.7

-21.114.1

-29.8-7.2

-15.7-8.2

County % Net In







2.97.0

-31.665.9

7.26.4

-42.53.84.9

-8.5-18.9-44.9

-18.50.84.4

-12.4-13.8-13.9

-1.6-24.1

7.63.9

-23.41.5

-5.2-1.4

-19.0-2.3

-10.4-2.8

-21.912.2

-10.3-26.111.410.3

County % Net In

23

While often not visible to some residents, counties provide a vast number of lo-cal services, from maintenance of both

county and state roads, to child welfare services, to aiding veterans and the elderly. Understanding how counties spend their dollars and how they pay for public services is basic to a county official’s job.

According to the most recent state figures avail-able, total spending by county government aver-aged $955 per capita in 2018. This figure ranged from under $600 per person to more than five times that amount. Counties with relatively small popu-lations and significant fixed costs often have higher per capita costs.

The largest share of county expenditures, typi-cally about 40%, pays for health and human service programs delivered to a variety of groups, includ-ing children, seniors, veterans, and the mentally ill.

Counties have multiple sources of revenue to fund the services they provide. Property taxes typi-cally account for about 40% of revenues, although that varies by county. State aid, particularly for hu-man services, accounts for more than a quarter of revenues on average.

In recent decades, the 0.5% optional sales tax has been adopted by most counties in Wisconsin. It typically contributes 10% or less of revenues.

Note: Spending figures are self reported using Wisconsin De-partment of Revenue accounts. Sometimes, counties differ on how to categorize certain spending. Users should be cautious when comparing spending categories.

FINANCES

24

Total County Expenditures Per Capita, 2018Counties by Quartile, Low to High Amount

County government spending depends on a variety of factors, including poverty, crime, and miles of county and state roads. Spend-

ing figures reported here are provided by counties to the Wisconsin Department of Revenue and include both operating and capital expenditures. They are reported here per capita to adjust for county popu-lation differences.

Per capita spending in 2018 averaged $955 per resident statewide and was generally higher in less populous counties.

Total Spending

Source: Wisconsin Department of Revenue: County and Municipal Revenues and Expenditures (CMRE)

Expenditures: Low to High

1st Quartile To $888

2nd Quartile$889-1,064

3rd Quartile$1,065-1,301

Top Quartile$1,302 & over

25

Total County Expenditures Per Capita, 2018

Statewide Measures

Average $955 Median $1,064







$1,8441,438

8991,813

7551,116

1,387799980

1,0961,4051,123

9191,1881,6791,0551,0461,016

2,3761,1121,371

9441,0991,302

8283,2841,157

7961,5311,143

1,064870867

1,146979789

County Total Exp.







7371,0601,3871,9711,048

806

9291,109

753639

1,298888

1,144957

1,6861,1541,014

852

1,529972

1,1201,5881,006

877

1,1841,053

7671,3011,0631,678

611560

1,2091,397

701891

County Total Exp.

26

Highway Expenditures Per Capita, 2018Counties by Quartile, Low to High Amount

Counties are responsible for maintaining, re-pairing, and upgrading county highways, as well as maintaining any state highways or

interstates within their boundaries. In some cases, counties also maintain town roads.

A county’s highway expenditures depend on road miles, as well as pavement condition. Since capital spending is included, annual spending can be volatile due to material and equipment purchas-es.

Statewide, county highway spending averaged $86 per capita in 2018. As counties are responsible for state and interstate highways, expenditures list-ed here will not correlate perfectly with the county road miles reported on pages 54-55.

Highway Expenditures

Source: Wisconsin Department of Revenue, CMRE


1st Quartile To $91

2nd Quartile$92-125

3rd Quartile$126-183

Top Quartile$184 & over

27

Highway Expenditures Per Capita, 2018

Statewide Measures

Average $86 Median $125







$426183

69337

57231

24965

146133120225

47177173153168112

405106117111104192

196226143

84135

95

1836491

186134

73

County Hwy. Exp.







9384

124206

36112

124124

7972

216156

124140204

37120

65

2709691

212161122

204183112125

91495

6154

150141

44140

County Hwy. Exp.

28

HHS Expenditures Per Capita, 2018Counties by Quartile, Low to High Amount

Health and human services (HHS) is the largest expenditure category for counties, accounting for over one third of all coun-

ty spending. According to the Wisconsin Depart-ment of Revenue, spending in this area includes “health officers, health inspections, mental health programs, general relief, cemetery, humane shelter, institution care, social programs, aging and veter-ans programs.” HHS spending averaged $320 per capita statewide.

Health & Human Services




2nd Quartile$287-339



29

HHS Expenditures Per Capita, 2018

Statewide Measures








$640592351507255345

355314389385286318

385566418361311439

411453256339485401

173692422314514417

332392315242179303

County HHS Exp.







223357369855317286

289267291183407253

347282485163367410

286234449462299291

344295255309304384

202191279461300338

County HHS Exp.

30

Total State Aids Per Capita, 2018Counties by Quartile, Low to High Amount

Counties receive state aids to help fund the many services they provide. The largest part of these aids helps pay for a variety

of human service programs. Counties also receive state assistance for health, highways, and law en-forcement, as well as county and municipal aids that can be used for any purpose. Statewide, about 80% of state aids to counties are for human ser-vices, health, and county and municipal aids.

Total state aids to counties averaged $234 per person across the state in 2018, about the same as five years earlier. Generally, per capita aids were highest in the north and lowest in the southeast.

State Aids


Aids: Low to High





31

Total State Aids Per Capita, 2018

Statewide Measures








$438431278529210402

336223403318310336

304209282329271362

629295415244226272

192534378193421319

279289278276187246

County State Aid







197282290

1,128198237

212233181161430204

27521641516241192

472152347363253196

302356306277148363

173122244294221280

County State Aid

32

County Levy Per Capita, 2019/20Counties by Quartile, Low to High Amount

The property tax is the major local revenue source for counties. On average, property taxes account for nearly 40% of county rev-

enues. In 2019, counties levied more than $2.2 bil-lion in property taxes, or $390 per capita.

Property tax levies depend on county spending, state aid, and other county revenues. The highest per capita property taxes were found primarily in northern and central Wisconsin. Levies were above $700 per resident in nine counties and below $300 per capita in six counties.

Property Tax Levy

Source: Wisconsin Department of Revenue

Property Tax Levies: Low to High





33

County Levy Per CapitaLevied in 2019, Payable in 2020

Statewide Measures








$885506472740347512

659419301513482538

359384

1,059387516349

956440615244469792

5621,011

513356502413

595300500516508378

County Prop. Tax







371419899647319386

529465332246602476

521435657286492439

592406501695414434

569511370818576682

276270542740406366

County Prop. Tax

34

County Property Tax Rates, 2019/20Counties by Quartile, Low to High Amount

Property tax rates vary widely by county. The tax rate is a ratio of the county levy to the value of all taxable property in the county,

excluding the value in tax incremental finance (TIF) districts. In general, counties with higher tax levies have higher rates, while those with more tax-able property value have lower rates. The highest rates were mostly in central and north central Wis-consin.

Statewide, the county property tax rate in 2019/20 averaged $4.09 per $1,000 of taxable property value.

Property Tax Rates


Rate: Low to High

1st Quartile To $4.09

2nd Quartile$4.10-5.20

3rd Quartile$5.21- 6.45

Top Quartile$6.46 & over

35

County Property Tax Rate (per $1,000 of Value)Levied in 2019, Payable in 2020

Statewide Measures

Average $4.09 Median $5.20







$6.816.584.994.204.185.85

3.625.373.438.044.787.48

2.905.154.094.817.104.07

6.645.884.833.955.436.45

6.366.096.324.096.154.64

7.083.587.245.805.945.50

County Tax Rate







4.714.438.368.434.795.34

5.022.353.861.767.005.72

4.725.176.583.507.366.00

7.153.514.443.185.325.22

8.146.715.572.473.884.22

2.401.886.706.845.075.18

County Tax Rate

36

County Sales Tax Revenue Per Capita, 2019Counties by Quartile, Low to High Amount

The state allows counties to impose a half-cent sales tax with revenues to be used for property tax relief. In 2019, 66 of 72 coun-

ties imposed the tax. In 2020, Menominee and Out-agamie counties began imposing the tax.

Counties that have regional retail centers collect more per capita than others. Collections statewide averaged $76 per capita in 2019. When counties without the tax are excluded, the amount rises to $93 per capita.

County Sales Taxes

X Counties without a sales tax in 2019


Sales Taxes: Low to High

1st Quartile To $65

2nd Quartile$66-79

3rd Quartile$80-93


X

X

X

XX

X

37

County Sales Tax Revenue Per Capita, 2019

Statewide Measures

Average $76* Median $79







$8593

10084

10962

757594618795

11777

1499875

108

658464687976

798773797093

59109

589076

0

County Sales Tax







969165

08681

54133

0997357

809770

06693

6597

1501196989

617260

128104

86

910

7463

083

County Sales Tax

*When counties without the tax are excluded, the average was $93 .

38

General Obligation (GO) Debt Per Capita, 2018Counties by Quartile, Low to High Amount

Counties usually borrow to pay for long-term capital projects, such as major high-way construction, new or expanded jails,

and other buildings. Typically debt is repaid over 20 years. General obligation debt is backed by the credit and taxing authority of the county.

On average, counties in 2018 owed $445 per capita in general obligation debt, which is backed by the county’s pledge to use available resources, including property taxes, to repay the debt.

County Debt


Debt: Low to High




Top Quartile $643 & over

39

General Obligation (GO) Debt Per Capita, 2018

Statewide Measures








$304162201235400157

395303159275961332

706314553642749830

432568

21258707737

511,209

155170938740

581731369174572308

County GO Debt







82612793252533439

554412379277

91689

333117307712

1,405263

775694224

69383318

144940137414

0183

125186715173196344

County GO Debt

41

A county’s demography and finances depend to a degree on its economic health and growth. Income, poverty, unemployment,

and property values help determine the capacity to prosper and provide public services. They can also point to the need for services, whether it be income maintenance, health care, job assistance, or rede-velopment.

Like population characteristics, these economic factors move together. High per capita incomes likely mean less poverty and joblessness, coupled with a larger property tax base. Low incomes are often accompanied by poverty, unemployment, and less property ownership.

The geography of the state reflects these eco-nomic factors. Many counties in the southwest, ru-ral center, and north illustrate the combination of modest incomes, above average poverty, and de-clining workforces.

One way for a county to move from a position of relative disadvantage to one of prosperity is through economic expansion. Employment growth is one indicator. New construction is another mea-sure of economic growth. This is especially impor-tant for local governments because it determines allowable increases in the property tax levy.

Construction activity has been greatest in coun-ties with ready interstate access – areas that run from Brown County in the northeast, south to the Illinois border, and then northwest through Madi-son to La Crosse and toward Minneapolis.

ECONOMY/DEVELOPMENT

42

Per capita personal income (PCPI) is a broad economic measure that includes wages, divi-dends and interest, rental income, and gov-

ernment payments, among others. In 2018, Wis-consin’s per capita personal income was $51,592.

Per capita income tends to be highest in urban and suburban counties. Average wages and cost of living are generally higher there as well. In four counties, PCPI was above $60,000; in five coun-ties, it was under $40,000.

Per Capita Personal Income, 2018Counties by Quartile, Low to High Amount

Personal Income

Source: U.S. Bureau of Economic Analysis

PCPI: Low to High

1st Quartile To $43,223

2nd Quartile$43,224-46,219

3rd Quartile$46,220-50,023


43

Per Capita Personal Income, 2018

Statewide Measures

Average $51,592 Median $46,219







$38,73641,10649,43148,54252,82144,756

42,70650,77646,16240,22851,14741,485

61,30444,79963,17843,00439,94848,240

54,34648,12641,51743,31051,02646,152

48,07351,47146,52846,24137,89846,874

46,19750,10743,04243,22345,76647,675

County PCPI







50,11144,01441,18230,37147,58941,779

45,60951,71551,23083,99247,96145,936

46,51445,88645,32049,74943,23344,204

44,19955,54348,36545,91542,29052,851

39,05144,69840,35653,98350,02347,218

58,60172,65045,62941,20448,10146,743

County PCPI

44

Job growth is important for the economic health of counties. Monthly and annual changes can sometimes be an aberration due to unusual ac-

tivity. Thus, five-year changes are presented here. During 2014-19, the number of jobs statewide in-creased 4.6%.

The fastest-growing counties were a mix of ur-ban and suburban counties, a shift from prior years when urban counties significantly outpaced rural counties. Growth exceeded 10% in four counties, including a 21% gain in Kenosha County..

Five-Year Job Growth, 2014-19Counties by Quartile, Low to High Percent

Employment Growth

Source: U.S. Bureau of Labor Statistics, QCEW

Growth: Low to High





45

Five-Year Job Growth (%), 2014-19

Statewide Measures


AdamsAshland

BarronBayfield

BrownBuffalo

BurnettCalumet

ChippewaClark

ColumbiaCrawford

DaneDodge

DoorDouglas

DunnEau Claire

FlorenceFond du Lac

ForestGrant

GreenGreen Lake

IowaIron

JacksonJefferson

JuneauKenosha

KewauneeLa CrosseLafayetteLanglade

LincolnManitowoc

-0.41.63.15.56.53.1

-1.711.54.75.39.4

-2.7

8.83.45.53.16.64.6

8.94.33.51.95.2

-7.2

1.81.43.01.24.9

21.4

-2.02.8

11.20.81.50.2

County Job Growth

MarathonMarinette

MarquetteMenomineeMilwaukee

Monroe

OcontoOneida

OutagamieOzaukee

PepinPierce

PolkPortage

PriceRacine

RichlandRock

RuskSt. Croix

SaukSawyer

ShawanoSheboygan

TaylorTrempealeau

VernonVilas

WalworthWashburn

WashingtonWaukeshaWaupaca

WausharaWinnebago

Wood

4.2-3.110.7-4.82.07.3

2.0-2.95.26.12.08.5

1.33.4

-5.22.8

-0.38.6

-3.66.33.16.21.94.9

4.4-4.64.59.46.80.1

8.36.4

-4.3-0.83.74.9

County Job Growth

46

Unemployment Rate, 2019Counties by Quartile, Low to High Rate

Another measure of economic health is the unemployment rate. The rate is calculated as the number of county residents 16 or

older who are unemployed and looking for work as a percentage of the total workforce in the county.

Statewide, 3.3% of the labor force was unem-ployed in 2019. That figure was up slightly from 3.0% in 2018. Economists generally consider a rate of approximately 4.5% to be consistent with full employment.

Unemployment

Source: U.S. Bureau of Labor Statistics

Unemployment Rate: Low to High




Top Quartile 4.0% & over

47

Unemployment Rate (%), 2019

Statewide Measures








4.84.53.75.32.93.9

5.02.63.63.12.94.0

2.32.83.54.03.32.9

4.42.84.93.12.73.6

2.75.83.62.93.13.7

3.02.72.53.93.53.2

County Rate







2.74.33.77.63.72.8

3.44.02.82.73.53.2

3.83.14.23.83.03.5

4.63.22.84.53.02.6

3.53.43.13.93.03.9

2.72.73.13.82.83.6

County Rate

48


Poverty Rate, 2018Counties by Quartile, Low to High Rate

Reducing poverty, defined by the federal government for 2018 as having a house-hold income less than $25,100 for a family

of four, can limit demand for tax-funded public ser-vices. In 2018, the statewide poverty rate averaged 11.1%. Generally, poverty was lowest in southeast Wisconsin and highest in the north and southwest.

Note: For 2020, the income cutoff for a family of four is $26,200

Poverty

Rate: Low to High





49

Poverty Rate (%), 2018

Statewide Measures








15.315.812.314.2

8.68.8

10.75.3

11.311.97.6

12.9

10.88.98.4

11.712.512.9

11.99.5

14.714.0

7.711.0

8.213.212.0

8.113.412.0

7.310.911.312.710.610.4

County Poverty Rate







7.512.010.826.519.113.2

9.29.47.24.2

10.38.5

9.611.312.412.614.310.9

14.34.78.6

14.59.67.5

10.38.0

13.610.910.112.5

4.55.0

10.410.910.410.1

County Poverty Rate

50

Equalized Values Per Capita, 2019Counties by Quartile, Low to High Values

Equalized values are estimates of the current market value of all taxable property in a county. Per capita values tend to be higher

in counties with more businesses and in those with more vacation property owned by nonresidents. Statewide, values averaged $99,406 per capita in 2019.

Of the 10 counties with the highest equalized value per capita, eight are in the north. These are generally sparsely-populated counties with large amounts of vacation property.

Property Values


Per Capita Value ($ Thousands): Low to High

1st Quartile To $79,575

2nd Quartile$79,576-88,448

3rd Quartile$88,449-117,379


51

Equalized Values Per Capita, 2019

Statewide Measures

Average $99,406 Median $88,448







$136,98378,52596,882

177,03688,32689,603

183,31084,69193,18865,897

102,36375,464

130,14077,438

262,91082,17575,17289,381

144,65077,056

127,54164,41587,991

124,188

91,959166,792

82,73391,34384,79198,967

86,04988,31772,06589,98887,75970,272

County Eq. Value







85,25896,675

108,48076,71770,99176,175

105,788199,158

88,569144,551

87,05885,882

114,30288,637

101,36383,84867,14377,064

85,728118,409121,932218,755

79,57587,029

72,38180,17068,981

331,400150,936164,983

117,379146,656

82,809110,52183,26373,660

County Eq. Value

52

Net New Construction, 2019Counties by Quartile, Low to High Percent Change

Net new construction measures the value of new taxable buildings in an area. This measure serves a dual purpose. First, it

provides a measure of economic activity in a coun-ty. Second, the percentages are used in the state levy limit formula to determine the amount by which counties can increase their property tax lev-ies. Net new construction for 2019 (activity during 2018) averaged 1.6% statewide.

New construction was greatest in counties with interstate access – from Brown County south to Kenosha County, and from Rock County running northwest to La Crosse and St. Croix counties.

New construction activity was weakest in the northern third of the state.

New Construction







53

Net New Construction (%), 2019

Statewide Measures








1.350.911.200.561.770.99

0.842.291.353.691.520.73

2.440.901.160.941.361.90

0.981.360.751.471.710.75

1.560.680.901.331.731.84

1.081.431.160.710.840.91

County % NNC







2.161.280.601.001.362.00

1.390.771.901.960.611.93

1.132.040.581.640.691.60

0.731.262.741.470.741.07

0.861.581.030.781.590.66

1.731.470.961.041.371.57

County % NNC

54

County Highway Miles, 2019Counties by Quartile, Low to High Miles

Wisconsin has nearly 40,000 miles of county highways that county govern-ments must maintain. By comparison,

total state and interstate highway miles total less than 12,000.

Among many factors accounting for the number of highway miles, geography is among the most important – large counties generally have more county highway miles than small ones.

Caution: Since county highway spending includes expendi-tures for maintenance of state and interstate highways within the county, it should not be combined with the figures here to calculate spending per mile.

County Highway Miles

Source: Wisconsin Department of Transportation

Road Miles: Low to High

1st Quartile To 426

2nd Quartile427-549

3rd Quartile550-665

Top Quartile666 & over

55

County Highway Miles, 2019

Statewide Measures

Average 548.4 Median 549.4







453.6182.7581.8345.6721.4440.1

635.8266.9975.3601.8714.5264.9

1,049.41,078.5

591.1664.5848.4835.0

98.2767.9218.1622.1555.8457.8

725.2133.8462.5510.3468.4505.6

431.1564.3543.0542.0541.4563.1

County Miles







1,228.8668.7474.4

73.0169.2683.0

637.0340.8685.4309.5155.0494.2

662.7868.0440.1305.7592.8426.2

510.3655.8610.3457.9587.9898.3

487.3583.4570.4408.3386.1397.5

363.9812.6666.9666.9439.1648.7

County Miles

57

To provide comparative figures for the state’s diverse 72 counties, much of the data con-tained in this report is presented on a per

capita basis. However, there are times when users may prefer totals rather than per capita figures. To facilitate that, the appendix that follows provides two years of population figures: 2018 and 2019.

POPULATION APPENDIX

58

Population, 2018

Statewide Measures

Total 5,816,231 Median 41,519







20,78616,03046,33615,327

260,61613,699

15,50852,65864,55134,74357,12516,737

530,51989,94928,46344,44344,617

102,816

4,454104,035

9,22752,61536,96719,174

23,8675,921

20,80084,35227,117

168,700

20,786119,19317,01020,13128,86281,494

County Population







135,92241,38215,408

4,258950,381

46,363

38,47636,383

184,54188,667

7,39142,021

44,38071,03814,046

196,20017,919

160,349

14,75488,58362,82216,82841,655

115,924

20,74629,76730,24821,771

103,53515,929

135,970401,446

52,21724,441

170,02574,817

County Population

Population Appendix

59

Population, 2019

Statewide Measures

Total 5,843,443 Median 41,588







20,63015,94646,47215,335

262,45213,707

15,52453,01864,88134,74857,28216,669

537,32890,03228,65044,46844,621

103,159

4,475104,423

9,19552,95437,08619,224

23,8965,894

20,83284,57927,232

170,071

20,782119,48417,00220,08628,95781,643

County Population







136,51741,40115,390

4,265946,296

46,994

38,77836,285

187,09289,905

7,43142,208

44,53671,68014,216

196,48718,007

160,444

14,91989,69263,28116,89341,775

116,547

20,84929,96430,42421,798

104,06216,027

137,637405,991

52,36824,517

170,58075,450

County Population

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